Eelnõu kooskõlastamine

Versioon 18.03.2020 /// Töö nr 19003453 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm Töö nr 19003453 Tartu-Tallinn Jaak Järvekülg KSH juhtekspert Raekoja plats 8 Maakri 29 Hendrikson & Ko 51004 Tartu 10145 Tallinn www.hendrikson.ee tel +372 740 9800 tel +372 617 7690 [email protected] Transpordi ja liikuvuse arengukava aastateks 2021-2030 3 Keskkonnamõju strateegilise hindamise programm Sisukord SISSEJUHATUS ....................................................................................................... 5 1 KESKKONNAMÕJU STRATEEGILISE HINDAMISE EESMÄRK JA ULATUS ..................................................................................................................... 5 2 ARENGUKAVA SISU JA SEOS TEISTE STRATEEGILISTE DOKUMENTIDEGA .................................................................................................. 6 3 KESKKONNAMÕJU STRATEEGILISE HINDAMISE METOODIKA ............. 14 4 ARENGUKAVA ELLUVIIMISEGA EELDATAVALT KAASNEV KESKKONNAMÕJU ............................................................................................... 16 5 MÕJUTATUD JA HUVITATUD OSAPOOLTE KAASAMINE ......................... 17 6 KSH LÄBIVIIMISE AJAKAVA ........................................................................... 18 7 STRATEEGILISE PLANEERIMISDOKUMENDI KOOSTAJA JA KSH EKSPERTRÜHMA KOOSSEIS ............................................................................. 19 LISA 1.1 „TRANSPORDI JA LIIKUVUSE ARENGUKAVA AASTATEKS 2021- 2030“ KSH ALGATAMISE KÄSKKIRI LISA 1.2 TRANSPORDI ARENGUKAVA 2014-2020 TULEMUSTE LÜHIANALÜÜS LISA 1.3 TRANSPORDI JA LIIKUVUSE ARENGUKAVA 2021–2030 KOOSTAMISE ETTEPANEK LISA 2.1 ASJAOMASTE ASUTUSTE SEISUKOHAD KSH PROGRAMMI SISU OSAS LISA 2.2 ASJAOMASTE ASUTUSTE SEISUKOHTADEGA ARVESTAMINE LISA 3.1 KSH PROGRAMMI AVALIKU ARUTELU PROTOKOLL LISA 3.2 KSH PROGRAMMI AVALIKU ARUTELU PROTOKOLLI LISA – PROGRAMMI SISU TUTVUSTAV SLAIDIETTEKANNE Transpordi ja liikuvuse arengukava aastateks 2021-2030 5 Keskkonnamõju strateegilise hindamise programm SISSEJUHATUS Käesolev keskkonnamõju strateegiline hindamine (edaspidi KSH) käsitleb „Transpordi ja liikuvuse arengukava aastateks 2021-2030“ (edaspidi arengukava või TLAK). Arengukava koostamine on algatatud Vabariigi Valitsuse 12.09.2019 korraldusega nr. 215 „Transpordi ja liikuvuse arengukava aastateks 2021–2030“ koostamise ettepaneku heakskiitmine". Arengukava töötatakse välja Vabariigi Valitsuse määruse „ Valdkonna arengukava ja programmi koostamise, elluviimise, aruandluse, hindamise ja muutmise kord“ kohaselt 1. Arengukava koostamise eest vastutavaks ministeeriumiks on määratud Majandus - ja Kommunikatsiooniministeerium (edaspidi ministeerium või MKM). Euroopa Parlamendi ja nõukogu direktiiv 2001/42/EÜ „Teatavate kavade ja programmide keskkonnamõjude hindamine“ ning siseriiklik keskkonnamõju hindamise ja keskkonnajuhtimissüsteemi seadus (edaspidi KeHJS) sätestavad kohustuse valdkonna arengukava kui strateegilise planeerimisdokumendi koostamisega samaaegselt läbi viia ka keskkonnamõju strateegiline hindamine (edaspidi KSH). KSH algatati majandus- ja taristuministri 14.11.2019 käskkirjaga nr 1.1 -1/19-199 (Lisa 1.1) ning selle eesmärgiks on aidata kaasa tasakaalustatud, Euroopa Liidu ja Eesti keskkonnapoliitikaga kooskõlas oleva arengukava koostamisele. 1 KESKKONNAMÕJU STRATEEGILISE HINDAMISE EESMÄRK JA ULATUS KeHJS § 32 tähenduses on keskkonnamõju strateegiline hindamine avalikkuse ja asjaomaste asutuste osalusel strateegilise planeerimisdokumendi elluviimisega kaasneva olulise keskkonnamõju tuvastamiseks, alternatiivsete võimaluste väljaselgitamiseks ning ebasoodsat mõju leevendavate meetmete leidm iseks korraldatav hindamine, mille tulemusi võetakse arvesse strateegilise planeerimisdokumendi koostamisel ja mille kohta koostatakse nõuetekohane aruanne. Strateegiliseks planeerimisdokumendiks, mille mõjusid hinnatakse, on „Transpordi ja liikuvuse arengukava aastateks 2021–2030“. Arengukava on transpordi järgmise kümne aasta arengusuundi käsitlev strateegiline planeerimisdokument, mille eesmärk on kavandatu d tegevustega tagada inimeste ja kaupade liikumine mugaval, kiirel, ohutul, nutikal ja jätkusuutlikul moel. KSH koostamisel lähtutakse arengukava üldistusastmest. KSH ruumiline ulatus on lähtuvalt arengukava üldisest eesmärgist vähemalt Eesti Vabariigi territoorium. KSH käigus antakse hinnang ka riigipiiri-ülesele mõjule, aga KeHJS §46 (Piiriülese keskkonnamõju hindamise erisus) ning Euroopa Parlamendi ja Nõukogu direktiivi 2001/42/EÜ Artikkel 7 (Piiriülesed konsultatsioonid) tähenduses olulist mõju teise riigi keskkonnale käesoleva programmi koostamise hetkel ei eeldata. 1 Arengukava algatamise ja käesoleva programmi koostamise hetkel on ametlikult kehtiv Vabariigi Valitsuse 13. detsembri 2005. a määrus nr 302 (RT I, 12.12.2017, 23) „Strateegiliste arengukavade liigid ning nende koostamise, täiendamise, elluviimise, hin damise ja aruandluse kord”. Teadaolevalt on aga plaanis see asendada uue Vabariigi Valitsuse määrus ega „Valdkonna arengukava ja programmi koostamise, elluviimise, aruandluse, hindamise ja muutmise kord” , mis on koostamisel. 25.11.19 on valminud määruse eelnõu, mis kinnitatakse eeldatavasti 2019.a detsembris, määrus jõustub eeldatavasti 1.01.2020. Arengukava koostamisel lähtutakse juba uuest määrusest. 6 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm Juhul kui KSH jooksul ilmneb olulise piiriülese keskkonnamõju võimalikkus, peab strateegilise planeerimisdokumendi koostamise korraldaja teavitama sellest viivitamatult Keskkonnaministeeriumit, kes korraldab KeHJS § 46 kohase strateegilise planeerimisdokumendi elluviimisega kaasneva piiriülese keskkonnamõju strateegilise hindamise protseduuri. KSH ulatus keskkonnaelementide lõikes sõltub arengukava eesmärkidest, meetmetest, tulemusindikaatoritest jms, mis töötatakse välja arengukava koostamise osana. Asjakohased keskkonnaelemendid täpsustatakse KSH käigus. Programmi koostamise ajal teadaolevad käsitletavad keskkonnaelemendid on nimetatud ptk 5. KSH ajaline ulatus lähtub strateegilise arengukava ajalisest ulatusest. Vastavalt Vabariigi Valitsuse 12.09.2019 korralduse nr. 215 „Transpordi ja liikuvuse arengukava aastateks 2021 – 2030“ koostamise ettepaneku heakskiitmine" (millega arengukava koostamine algatati) nimele on arengukava ja KSH ajaliseks ulatuseks 10 aastat. Samas on nimetatud korralduse eelnõu seletuskirjas öeldud järgmist: „Võimalusel võiks transpordipoliitika kestlikkuse aspektist lähtuvalt arengukava koostamisel täpse malt läbi arutada arengukava kestuse – 10 aasta asemel 15 aastat (aastateks 2021 –2035). Eesti 2035 on koostatud järgneva 15 aasta peale. Niisamuti pooldab Rahandusministeerium arengukaval 15 aastast vaadet. Seetõttu võib 2020. a detsembris Valitsusele heak s kiitmiseks tulla arengukava perspektiiviga 15 aastat.“ 2 ARENGUKAVA SISU JA SEOS TEISTE STRATEEGILISTE DOKUMENTIDEGA Arengukava koostamise ettepanek (vt Lisa 1.3) sisaldab arengukava koostamise vajaduse põhjendust ja koostamise eesmärke ning lahendamist v ajavate probleemide kirjeldust järgnevalt: Transpordi ja liikuvuse arengukava 2021-2030 koostamine on vajalik, kuna tänane transpordi arengukava 2014-2020 kaotab kehtivuse 2020. aastal. Transpordi ja liikuvuse arengukava aastateks 2021–2030 on tarvilik tulemusvaldkonna eesmärkide pikaajaliseks seadmiseks. Võimalusel võiks transpordipoliitika kestlikkuse aspektist lähtuvalt arengukava koostamisel täpsemalt läbi arutada arengukava kestuse - 10 aasta asemel 15 aastat (aastateks 2021 – 2035). Senisest tugevamalt on fookuses valdkondade ülene koostöö, eriti kliimapoliitika ja energeetika eesmärkidega seoses. Lisaks mõjutab uue perioodi arengukava oluliselt digitaliseerimine, automatiseerumine. Eelnevast tulenevalt on vajalik seada tuleviku sihid ja eesmärgid. Transpordi ja liikuvuse arengukava aastateks 2021 –2030 koostatakse, et 1) toetada Eesti majandusarengut läbi poliitika tõhusa toimimise kiiresti muutuvas keskkonnas; 2) tagada, et valdkonna poliitilised sihid ning erinevad tegevussuunad oleks omavahel loogiliselt seotud, sh koostoimes muude valdkondlike poliitikaeesmärkidega; 3) viia süsteemselt ja koordineeritult ellu EL-i institutsioonide, Riigikogu ning Vabariigi Valitsuse poolt vastu võetud alusdokumentides sätestatut; 4) planeerida valdkonna eesmärke koostöös partneritega. Programmile on lisatud ka Transpordi arengukava 2014 -2020 tulemuste lühianalüüs (MKM mitteametlik analüüs, vt Lisa 1.2), milles on esitatud muuhulgas valdkonna olemasoleva olukorra kirjeldus ning analüüs kehtiva arengukava eesmärkide saavutamise kohta. www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 7 Keskkonnamõju strateegilise hindamise programm Arengukava sisu, sealhulgas eesmärgid ja lahendamist vajavad probleemid, täpsustuvad arengukava koostamise käigus, tuginedes mh seniste dokumentide ja ar engute analüüsil (olemasoleva olukorra kirjeldusel). Vastavalt Transpordi arengukava 2021-2030 koostamise ettepanekule tagatakse arengukava koostamisel ka eesmärkide kooskõla riigi strateegiliste arengudokumentidega, mis kehtivad arengukava jõustumisel, sealhulgas horisontaalsetest arengustrateegiatest tulenevate riigi säästva arengu ja konkurentsivõime eesmärkidega, samuti arvestatakse ka transpordipoliitikaga seotud riigi strateegiliste arengueesmärkidega, mis on arengukava koostamise ettepaneku esitamise hetkel sõnastatud järgmistes arengudokumentides 2: „Kliimapoliitika põhialused aastani 2050“ 3 Aastaks 2050 tuleb eelkõige Eesti energiamajanduse, sealhulgas transpordi süsinikuheidet otsustavalt ja oluliselt vähendada. Transpordisaastet p eab vähendama sundliikumise vajaduse kahanemise ning ühistranspordi, kergliikluse ja vähese süsinikuheitega transpordisüsteemi arendamise tulemusel. Samuti peab kütusekulukate sõidu - ja kaubaautode kasutamise hinnas hakkama adekvaatselt kajastama nende kas utusega keskkonnale põhjustatavat kahju. Soodustatakse kodumaiste bio- ning teiste taastuvenergiaressursside laialdast kasutuselevõttu nii elektri- ja soojusenergia tootmisel kui ka transpordikütustena. Avaliku sektori investeerimis - ja maksupoliitikaga mõjutatakse ökonoomsete sõidukite, säästlike transpordikütuste ning ühiskasutuses sõidukite eelistamist. Riigihangetes eelistatakse ökonoomseid sõidukeid ja säästlikke alternatiivkütuseid. Avaliku sektori eeskujul suurendatakse tarbijate teadlikkust. Riik ja kohalikud omavalitsused edendavad transpordikorraldust, mis lähtub ühtsest tervikust ega sõltu haldusjaotusest ning ühistranspordiettevõtte omandivormist. Eesmärgi saavutamiseks kaalutakse transpordi kogumõjust ja kasvuhoonegaaside heite vähendamisest läh tuva maksupoliitika kujundamist üldist maksukoormust suurendamata. Muudame maailma: säästva arengu tegevuskava aastaks 2030 4 Kavandatav arengukava aitab saavutada eelkõige eesmärki „jätkusuutlikud ja kaasavad linnad ja asulad“ – ehk tagada 2030. aastaks kõikidele turvalised, taskukohased, kättesaadavad ja säästvad transpordisüsteemid ja parandada liiklusohutust, eelkõige ühistra nspordi osakaalu suurendamise abil ja pöörates rohkem tähelepanu ebasoodsas olukorras olevate inimeste, naiste, laste, puudega inimeste ja vanemate inimeste vajadustele. Aga ka eesmärke „meetmed kliimamuutuste ja nende mõjudega võitlemiseks“, „ookeanide ja merede säästev kasutamine“, „ebavõrdsuse vähendamine“ ning „tervis ja heaolu, sh liiklusõnnetustes hukkunute ja vigastuste vähendamine 50% võrra“. Eesti julgeolekupoliitika alused 5 Eesti julgeolekupoliitika alused käsitlevad transporti peatükis 3.5 „Majandusjulgeolek ja seda toetav taristu“. Otseselt ka riigi julgeolekuga seotud transporditaristu areng edendab majandust ning suurendab selle riskikindlust - transporditaristu planeerimisel ja arendamisel arvestatakse majandus- ja sotsiaalarengu ning riigikaitse vajadustega. Rõhutatakse, et transporditaristu puhul on esmatähtis rekonstrueerida või välja ehitada üleeuroopalisse transpordivõrgustikku kuuluvad sadamad, lennujaamad ning raudtee- ja maanteevõrk. Vastuvõtva riigi toetuse seisukohalt on transporditaristul tähtis riigikaitseline roll. Transpordisüsteemi toimepidevuse kindlustamisel ja kaitsel rakendatakse rahvusvaheliste standardite kohaseid julgeoleku - ja ohutusnõudeid. 2 Arengudokumendid on loetletud vastavalt arengukava koostamise ettepanekule, kuid teavet on uuendatud seisuga november 2019. 3 https://www.envir.ee/sites/default/files/kpp_2050 .pdf 4 https://www.riigikantselei.ee/sites/default/files/content -editors/Failid/SA_eesti/saastva_arengu_tegevuskava_2030_uro_et.pdf 5 https://www.riigiteataja.ee/aktilisa/3060/6201/7002/395XIII_RK_o_Lisa.pdf# 8 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm Eesti spordipoliitika põhialused aastani 2030 6 Eesti spordipoliitika põhialused aastani 2030 sätestab, et aastal 2030 vastab eestimaalaste vaimne ja kehaline tasakaal ning heaolu Põhjamaade tasemele ning Eestis on kehalist aktiivsust soodustav elukeskkond koos kaasnevate teenustega, mis toetavad inimeste tervena elatud eluea pikenemist ja eneseteostust ning majanduskasvu. Liikumisel ja spordil on oluline ning kasvav roll eestimaalaste elujõu edendamisel, rikka elukeskkonna loomisel ja Eesti riigi hea maine kujundamisel. Rikka elukeskkonna all peetakse silmas sotsiaalselt vastutustund likult arendatud ning kergesti kohandatavat liikumise ja spordiga seotud teenuspõhist ettevõtlus - ning kultuuriruumi. Kultuuripoliitika põhialused aastani 2020 7 Vastavalt „Kultuuripoliitika põhialused aastani 2020“ on kultuuripoliitika tihedalt seotud mitme teise riikliku poliitikavaldkonnaga, sh haridus -, majandus-, sotsiaal-, keskkonna-, tööhõive-, lõimumis-, regionaal-, turismi- ja välispoliitikaga. Mitmekülgne kultuurielu mõjutab olulisel määral Eesti elanike heaolu, siinse elukeskkonna kvaliteeti ja riigi rahvusvahelist konkurentsivõimet. „Kultuuripoliitika põhialused aastani 2020“ sätestab, et riik väärtustab elukeskkonda kui tervikut, mis koosneb nii ehitatud ja kujundatud keskkonnast kui looduskeskkonnast. Kvaliteetsel ehitatud keskkonnal on oluline roll riigi säästva arengu eesmärkide saavutamisel. Kvaliteetse ehitatud keskkonna aluseks on asjatundlikud ruumilised otsused planeerimisel ja projekteerimisel . Eesti Euroopa Liidu poliitika 8 Eesti Euroopa Liidu poliitika määratleb peamised põhimõtted, millest valitsuse Euroopa Liidu poliitika lähtub. Transpordile on pühendatud selles eraldi peatükk, kus on rõhutatud tänapäevaste ühenduste loomise vajalikkust Balti riikide ja ülejäänud Euroopa vahel (Via Baltica, Rail Baltic), ühenduste parandamist EL-i väliste naaberriikidega, transpordituru avamist ja liberaliseerimist, kliima- ja energiapoliitika eesmärkide saavutamist, ning „saastaja maksab“ printsiibi rakendamise aspekte. Kogu transpordisektoris on oluline ra kendada reegleid ühtselt ning vähendada keskkonna- ja halduskoormust, mida aitab saavutada e-lahenduste laialdasem kasutuselevõtmine. Pikemas perspektiivis peaks üle-euroopaliste ja rahvusvaheliste infosüsteemide kasutamine võimaldama paberdokumentidest lo obuda ning kasvuhoonegaaside heitmeid vähendada, säilitades samal ajal transpordisektori tõhususe. Eesti merenduspoliitika 2012–2020 9 Eesti merenduspoliitika 2012–2020 on dokument, mis teatud peatükkidega sisustab uut arengukava. Merenduspoliitikas käsitletakse transpordi poole pealt laevandust, sadamate ja logistika arengut ning veeteede arengut. Eesti 2035+ strateegia 10. Eesti 2035+ strateegiaga arvestatakse nii palju kui paralleelselt võimalik on, sest käesoleva arengukava koostamise hetkel pole Eesti 2035+ strateegiat vastu võetud, kuid tegemist on niivõrd olulise ja horisontaalselt kõiki valdkondi, s.h transporti, käsit leva arengudokumendiga. Muuhulgas pöörame tähelepanu Eesti 2035+ raames kaardistatud järgmistele megatrendidele: ▪ Linnastumine suureneb, kasvab rahvastiku ränne ▪ Elanikkond vananeb, rahvaarv kahaneb Euroopas, kuid kasvab mujal maailmas 6 https://www.riigiteataja.ee/akt/320022015002 7 https://www.kul.ee/sites/kul minn/files/kultuur2020.pdf 8 https://www.riigikantselei.ee/et/valitsuse -toetamine/euroopa-liit/eesti -euroopa-liidu-poliitika-ja-selle-eesmargid 9 https://www.mkm.ee/sites/default/files/merenduspoliitika.pdf 10 https://www.riigikantselei.ee/et/Eesti2035 www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 9 Keskkonnamõju strateegilise hindamise programm ▪ Loodusressursid vähenevad ja keskkonnaseisund halveneb (kliimapõgenikud, looduslikud surnud tsoonid kasvavad, 2035.a kannatab pool maailmast veepuuduse all) ▪ Globaalne poliitiline olukord muutub (demokraatia taandub, ida tõuseb ja Euroopa muutub Aasia tagahooviks, sõjaliste konfliktide oht) ▪ Ärimudelid ja töö olemus muutub (töö muutub automatiseeritumaks) ▪ Tehnoloogia muutub järjest kiiremini Energiamajanduse arengukava aastani 2030 11 Eesti energiamajanduse arengukava üldeesmärgi täitmine aastaks 2030 on transpordi valdkonnas iseloomustatav selle tulemuse kaudu, et sõidukipargi kütusekulu aastal 2030 ei ületa 2012. aasta taset (8,3 TWh). Kliimamuutustega kohanemise arengukava aastani 2030 12 Transport on keerukas süsteem, mis koosneb taristust, transpordivahenditest, veoteen usest, inimestest, kes liiguvad, ja kaupadest, mida liigutatakse ning sellega seotud teenustest, teabest, õigusnormidest ja organisatsioonidest. Inimeste liikumine jaguneb kohalikuks, regionaalseks, üleriigiliseks ja rahvusvaheliseks vastavalt liikumisvaja dusele (liikumiskaugusele ja -suundadele). Peamised tegurid, mida kliimamuutused transpordisüsteemis mõjutavad, on järgmised: ühenduskindlus; ühenduskiirus, reisi kestus, tarneaeg; transporditaristu ja transpordi ITK seadmete seisund ja töökindlus, hooldus vajadus; liiklusohutus ja turvalisus; kaubaveo ja ladustamise ohutus; transpordi ja liikuvuse hind; liikumis- ja sõidumugavus; transpordi energiakulu ja energiatõhusus. Eri transpordiliike võivad ilmastikuolud mõjutada erinevalt. Äärmuslike ilmastikunähtus te mõjul võivad transpordiühendused katkeda, ajakulu tavapärase olukorraga võrreldes kasvada, reisijad, sõidukid või transpordi tehnoseadmed viga saada, kaubad rikneda või kahjustuda ning ohtlike veoste puhul keskkond kahjustatud saada. Tõrked transpordisü steemis mõjutavad omakorda paljusid teisi eluvaldkondi. Alaeesmärk 7. Kliimamuutuste mõju tõttu ei ole vähenenud elutähtsate teenuste kättesaadavus ega hoonete energiatõhusus. Tehniliste tugisüsteemide valdkonnas on kavas suurendada tehniliste tugisüsteemi de valmisolekut mistahes ilmastikuolude korral, mis on suunatud transporditaristu (sh maanteede, raudtee ja sildade) kasutuskindluse ja äärmuslikes ilmastikuoludes läbitavuse tagamisele. Põllumajanduse ja kalanduse valdkonna arengukava aastani 2030 13 Koostatavas Põllumajanduse ja kalanduse valdkonna arengukavas aastani 2030 on transpordiga seotud meetmed, mis on seotud taimekaitsetöödega transporditaristu hooldusel ja suurte transporditaristuprojektide puhul geneetilise ressursi säilitamisega. Muuhulga s on transporditaristul oluline mõju ka Eesti erinevate ranna - ja maapiirkondade arengule ning sealsele ettevõtlusele. Üleriigiline planeering „Eesti 2030“ 14 Üleriigiline planeering „Eesti 2030+“ viitab põhimõtete alapunktis, et transpordil on oluline roll üleriigilise planeeringu peamise eesmärgi saavutamisel. Planeeringu peatükk 4 „Head ja mugavad liikumisvõimalused“ käsitleb toimepiirkondade sisest liikumist, linnapiirkondade liikumist, liikumisvõimaluste tagamist hajaasustuses, toimepiirkondade omavahelist sidustamist, ühendusi välismaailmaga ning erinevate transpordiliikide tasakaalustatud kasutamist. 11 https://www.mkm.ee/sites/default/files/enmak_203 0.pdf, lk 13 12 https://www.envir.ee/sites/default/files/kliimamuutustega_kohanemise_arengukava_aastani_2030_0.pdf 13 https://www.agri.ee/et/pollumajanduse -ja-kalanduse-valdkonna-arengukava-aastani-2030 14 https://www.rahandusministeerium.ee/sites/default/files/Ruumiline_planeerimine/eesti2030.pdf 10 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm Maakonnaplaneeringud 2030+ Maakonnaplaneeringud 2030+ täpsustavad üleriigilise planeeringuga skemaatiliselt määratud toimepiirkondi ning liikumisvõimaluste tagamise põhimõtteid toimepiirkondade lähivööndis, siirdevööndis ja äärealal. Määratud on transpordivõrgustiku asukohad. Lähtudes elanike, teenuste ja töökohtade paiknemisest ja liikuvusuuringu test on maakonnaplaneeringutega määratud tasakaalustatud ja kestlik neljatasandiline keskuste võrgustik (maakondlik, piirkondlik, kohalik ja lähikeskus), samuti võrgustiku toimimist suunavad olulised tingimused. Maakonnaplaneeringutega on valglinnastumise ohjamiseks piiritletud linnaline ja maaline asustus ja antud arengusuunised. Suuniseid täpsustatakse üldplaneeringutega, mida koostavad lähiaastatel 80% Eesti omavalitsustest. Eesti keskkonnastrateegia aastani 2030 15 Eesti keskkonnastrateegia aastani 2030 väärtustab loodusvarade säästlikku kasutamist. Keskkonnastrateegia põhieesmärgiks on inimesi rahuldava tervisliku keskkonna ja majanduse arendamiseks vajalike ressursside tagamine ilma loodust oluliselt kahjustamata. Konkreetselt on transpordiga seotud probleemid kirjeldatud peatükis 4.3, kus on välja toodud valglinnastumise, ühistranspordi ja alternatiivsete energiaallikate ebapiisava arendamise ja odava transiidikoridorina toimimise tulemusena tekkinud probleemid. Ne ed on autode hulga suurenemine ja sellega seoses suurenenud maakasutus, õhusaaste suurenemine, keskkonnariskide suurenemine, keskkonnasõbralike energiaallikate ja kütuste vähene kasutus. Probleemide lahendamiseks seatud eesmärk on kirjeldatud peatükis 5.3 „Kliimamuutuste leevendamine ja õhu kvaliteet“: arendada välja efektiivne, keskkonnasõbralik ja mugav ühistranspordisüsteem, ohutu kergliiklus (muuta alternatiivid autole mugavamaks) ning sundpendelliiklust ja maanteevedusid vähendav asustus - ja tootmisstruktuur (vähendada transpordivajadust). Riiklik turismi arengukava 2014-2020 16 Riikliku turismi arengukava 2014-2020 eesmärkide ellu viimine on väga konkreetselt seotud transpordi arengukavaga. Arengukava kuues alaeesmärk panustab suuresti just turismisekt ori arengu toetamisse läbi välisühenduste arendamise. Eesti siseste ühenduste tagamisel ja arendamisel otseselt ainult turismi arendamiseks vajalikke tegevusi ette ei nähta (va maanteedel viidastuse korrastamine), kuid nende ellu viimisel arvestatakse muuh ulgas ka turismisektori vajadusi. Eesti infoühiskonna arengukava 2020 17 Eesti infoühiskonna arengukava 2020 tegevused aitavad info- ja kommunikatsioonitehnoloogiate laiema kasutusega sundliikumist vähendada. See tähendab, et erinevalt enamikust teistest arengukavadest, mille puhul aitab transpordi arengukava nende eesmärke ellu viia, aitab infoühiskonna arengukava ellu viia transpordi arengukava eesmärke. Lihtsalt ja mugavalt ning igal pool kättesaadavad e -teenused vähendavad sundi liikuda. Parem IKT taristu ja laiem ning kompetentsem kasutajaskond võimaldab transpordisektoris arendada ja kasutusele võtta uusi nutikaid lahendusi. Eesti ettevõtluse kasvustrateegia 2020 18 Eesti ettevõtluse kasvustrateegia 2020 peab silmas nelja sihti: Eesti elanikud on ettev õtlikud ning ettevõtted ambitsioonikad, Eesti ettevõtted toodavad efektiivselt kõrge lisandväärtusega tooteid ja teenuseid, Eesti ettevõtted on aktiivsed eksportijad ja Eesti ettevõtluskeskkond on maailmas konkurentsivõimeline. Paremad ühendused panustavad eelkõige kolmandasse ja 15 https://www.riigiteataja.ee/aktilisa/0000/1279/3848/12793882.pdf# 16 https://www.riigiteataja.ee/aktilisa/3191/1201/3015/lisa.pdf 17 https://www.mkm.ee/sites/default/files/elfinder/article_files/eesti_infouhiskonna_arengukava.pdf 18 https://kasvustra teegia.mkm.ee/ www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 11 Keskkonnamõju strateegilise hindamise programm neljandasse sihti. Lisaks on transport ka ise majandusharu ning arvestades suuremate logistikafirmade majandusnäitajaid, moodustab transport olulise osa Eesti ettevõtlusest. Looduskaitse arengukava aastani 2020 19 Looduskaitse arengukava aastani 2020 käsitleb transpordi mõju peatükis 3.4, nimetades, et „transport võib mõjutada elusloodust negatiivselt peamiselt elupaiku killustades ja liikide looduslikku levikut takistades. Samuti võib transport soodustada invasiivsete võõrliikide l evikut. Elurikkuse säilitamiseks tuleb uute transpordirajatiste planeerimisel nende küsimustega arvestada.“. Tegevustena nähakse ette mõjude analüüsi ja leevendamist. Eesti metsanduse arengukava aastani 2020 20 Eesti metsanduse arengukava aastani 2020 toob välja, et metsamaterjali vedu raudteed pidi on seni olnud alakasutatud eelkõige selle kõrge maksustamise tõttu. Senine metsamaterjali transpordi korraldus ei rahulda metsatööstusettevõtteid ja erametsaomanikke. Otsitakse võimalusi transpordivõimaluste kuluefektiivsemaks, keskkonnasõbralikumaks ja liiklusohutumaks muutmiseks. Rahvastiku tervise arengukava 2009–2020 21 Rahvastiku tervise arengukava 2009–2020 toob välja, et vähenenud on noorukite kehaline aktiivsus ja see on madal ka täiskasvanute hulgas. Suurimat haiguskoormust põhjustavaks haigusrühmaks on südameveresoonkonnahaigused, mille kujunemisel mängib samas väga suurt rolli iga inimese tervisekäitumine (muuhulgas kehaline aktiivsus). Valdkonna ühe strateegilise eesmärgina (nr 4) on toodud, et tuleb suurendada elanikkonna kehalist aktiivsust. Korraldatavad tegevused on suunatud ühelt poolt inimeste hoiakute, tõekspidamiste ja väärtushinnangute kujundamisele ning teiselt poolt tervist toetava keskkonna loomisele. Lisaks on luubi all uimastite ja rahustite tarbimise, vaimse tervise häirete ja hoolimatu või agressiivse käitumise mõju liiklusohutusele, iseäranis sõidukijuhtide puhul. Siseturvalisuse arengukavaga 2015-2020 22 (edaspidi STAK). Peamised käsitletavad teemad STAKis on liiklusohutus ja –turvalisus, riigi ja kohalike teede sõidetavuse tagamine kui elutähtis teenus, lennujaamade ja sadamate turvalisus, objekti kaitse jmt. Loodava arengukava üks alasihte võiks olla riskiva ja ennast või teisi ohtu seadva käitumise vähenemine ja selleks vajalike meetmete rakendamine. Siinkohal võib näite ks üheks võimalikuks meetmeks olla üldharidussüsteemis õpetajate kaasamine turvalise liiklemise hoiakute ja käitumise kujundamisesse. Regionaalarengu strateegia 2014-2020 23 Regionaalarengu strateegia aastani 2020 täpsustab ja täiendab üleriigilist planeeringu „Eesti 2030+“. Selle eesmärgiks on ühtlustada Eesti piirkondlikku arengut, mille puhul iga piirkond panustaks oma eripärale, tuginedes Eesti kui terviku konkurentsivõime kasvule. Inimestel oleksid kättesaadavad head töökohad, kvaliteetsed teenused, võ imalused eneseteostuseks ning mitmekesiseid tegevusi võimaldav elukeskkond. Kõigi toimepiirkondade terviklik areng ühtlaselt üle Eesti on vajalik asustussüsteemi tasakaalustatud arenguks. Selle oluline eeldus on väiksemate keskuste võime toimida 19 https://www.envir.ee/sites/default/files/lak_lop_0.pdf 20 https://www.riigiteataja.ee/aktilisa/3180/2201/1003/Eesti_%20metsanduse_arengukava.pdf 21 https://www.sm.ee/sites/default/files/content -editors/eesmargid_ja_tegevused/Tervis/2012_rta_pohitekst_ok_5.pdf 22 https://www.siseministeerium.ee/sites/default/files/dokumendid/Arengukavad/siseturvalisuse_arengukava_2015 - 2020_kodulehele.pdf 23 https://www.rahandusministeerium.ee/sites/default/files/docu ment_files/REGO/eesti_regionaalarengu_strateegia_2020_taiendatud_ 2018.pdf 12 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm toimepiirkonna keskusena oma tagamaale ja keskus-tagamaa hea sidustatus läbi transpordiühenduste, ettevõtlusvõrgustike ja koostöö. Oluline on toimepiirkondade sisemine sidustamine töö ja teenuste paremaks kättesaadavuseks, võimaldamaks kogu toimepiirkonna elanikel saada paremini osa eri kohtade pakutavatest võimalustest ja hüvedest. Selleks edendatakse toimepiirkondade keskusi tagamaaga sidustavat ühistranspordikorraldust ning toetatakse investeeringuid toimepiirkonna uimsisese liikumisvajaduse seisukohast oluliste transpordisõlmede, kergliiklusteede ja juurdepääsuteede rajamiseks. Arengukavas on toodud järgmised eesmärgid, mis on seotud transpordi planeerimisega: a) igapäevaseks tööl käimiseks ühistransporti või jalgratast (või muud kergliikluse sõiduvahendit) kasutavate ja jalgsi liikuvate inimeste osatähtsuse suurendamine pealinna - jt suuremates linnapiirkondades; b) rahulolu teenuste (sh ühistransport) kättesaadavusega väljaspool Harju- ja Tartumaad; c) toimepiirkondade keskuste arv, millel on regulaarsed ühistranspordi otseühendused piirkondadega väljaspool Eestit. Eesti säästva arengu riiklik strateegia „Säästev Eesti 21“ 24 Riigikogu 14.septembri 2005. a otsusega heaks kiidetud strateegia. Eesti riigi ja ühiskonna arendamise strateegia 2030. aastani, sihiga ühendada globaalsest konkurentsist tulenevad edukuse nõuded säästva arengu põhimõtete ja Eesti traditsiooniliste väärtus te säilitamisega. Strateegia põhiülesanne on vastata küsimusele – mida tuleks teha tagamaks Eesti ühiskonna ja riigi edukas toimimine ka pikemas perspektiivis? Mistõttu on strateegia aluseks valdkondlike arengukavade koostamisel. „Teatavate õhusaasteainete heitkoguste vähendamise riiklik programm aastateks 2020 - 2030“ 25 Potentsiaalsed meetmed õhusaasteainete vähendamise eesmärkide täitmiseks transpordi valdkonnas on järgmised: 1) raskeveokite teekasutustasud; 2) elektriautod; 3) ruumilised ja maakasutuslikud meetmed linnades transpordi energiasäästu suurendamiseks; 4) sõidukite rehvid ja aerodünaamika; 5) põhiraudteevõrgu raudteevõrgu elektrifitseerimine ja kasutuse laiendamine; 6) linnade parkimispoliitika; 7) ökonoomse juhtimise edendamine; 8) kergliikluse arendamine; 9) ühistranspordi teenuse lisamine; 10) kaugtöö ja e -teenused; 11) autode kooskasutus. Konkurentsivõime kava „Eesti 2020“ 26 Kavas nimetatakse konkurentsivõimelise ettevõtluskeskkonna peatüki all Valitsuse poliitika ühe suunana transpordi taristu ja institutsioonide viimist rahvusvahelisele tasemele (poliitika suund nr 11). Märgitakse, et Eesti asukoha ja asustuse paiknemise tõttu on konkurentsivõimelisel tasemel ühendusvõimalused nii piiriüleselt kui ka siseriiklikult elu - ja ettevõtluskeskkonna jaoks väga olulised. Konkreetsete tegevussuundade kohta on öeldud, et „…oluline on pöörata enim tähelepanu rahvusvahelistele ühendusteedele, iseäranis lennuühendustele ja piiriületavatele raudteedele ja maanteedele. Tasakaalustatud regionaalse arengu hu vides tuleb lisaks rahvusvahelistele maanteedele jätkata riigi kõrvalmaanteede tolmuvaba katte alla viimist, teha ettevalmistusi ühistranspordisüsteemide ühendamiseks…“. 24 https://www.riigikantselei.ee/sites/default/files/content -editors/Failid/saastev_eesti_21.pdf 25 https://www.envir.ee/et/eesmargid -tegevused/valisohukaitse/ohusaasteainete -vahendamise-programm 26 https://www.riigikantselei.ee/sites/default/files/content -editors/Failid/eesti2020/ee2020_2019 -2020_30.05.2019.pdf www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 13 Keskkonnamõju strateegilise hindamise programm Eesti elukestva õppe strateegia 2020 27 Haridus- ja Teadusministeeriumi elukestva õppe strateegia 2020 kohaselt on transpordikorraldus oluline eeltingimus õppijate ligipääsu tagamisel nii formaalhariduse le kui ka huviharidusele ja täienduskoolitusele. Euroopa Liidu Läänemere piirkonna strateegia 28 Euroopa Liidu Läänemere piirkonna strateegiat puudutav Komisjoni teatis toob peamise transpordiprobleemina välja halva juurdepääsetavuse paljudele piirkonna osadele: Põhja - Soomet, Rootsit ja Balti riike iseloomustab nii sise- kui ka välistranspordis kõige madalam juurdepääsetavuse näitaja kogu Euroopas. Põhjuseks on piirkonna lai ulatus, mistõttu reisiteekonnad on pikad ja võtavad palju aega, ning rasked ilmastiku - ja geograafilised olud. Hõre infrastruktuur või osutatavate teenuste vähesus toob kaasa kõrge d hinnad. Lahenduseks saab olla säästlike transpordivahendite kasutamine. Tegevuskava hõlmab järgmisi prioriteetseid valdkondi: 1) parandada energiaturgude juurdepääsetavust, tõhusust ja julgeolekut; 2) parandada nii sise- kui ka välistranspordivõrku; 3) säilitada ja suurendada Läänemere piirkonna atraktiivsust, eelkõige hariduse, turismi ja tervishoiu valdkonna meetmete kaudu. Eesti merestrateegia 29 EL merestrateegia raamdirektiivi (2008/56/EÜ) põhieesmärgiks on säilitada või saavutada hiljemalt aastaks 2020 mereala hea keskkonnaseisund, edendada mereala säästvat kasutamist ja säilitada ökosüsteeme. Üldiste eesmärkide saavutamiseks koostatakse riiklikud on merestrateegiad, kus esitatakse nn hea keskkonna tunnused ja neid iseloomustav keskkonnasihtide kogum, koos hea seisundi hindamiseks vajalike indikaatoritega. Sihtide saavutamiseks on koostatud ülevaade olemasolevatest meetmetest ja kus vajalik, töötatud välja täiendavad meetmed. Transpordisektoril võib potentsiaalselt olla mõju (otsene või kaudn e) enamikele merestrateegias määratletud 11 tunnusele: • Bioloogiline mitmekesisus on säilinud. Elupaikade kvaliteet ja olemasolu ning liikide levik ja arvukus on kooskõlas valitsevate füüsilis -geograafiliste ja klimaatiliste tingimustega • Inimtegevuse tulemusel sissetoodud võõrliigid jäävad tasemele, millel ei ole negatiivset mõju ökosüsteemile • Kaubanduslikel eesmärkidel kasutatavate kala ja karploomade populatsioonid on ohututes bioloogilistes piirides, kusjuures populatsiooni vanuseline ja suuruseline koosseis annab tunnistust ressursside heast seisukorrast • Kõik teadaolevad mere toiduvõrkude elemendid eksisteerivad tavapärase arvukuse ja mitmekesisuse tasemel, mis on võimeline tagama pikaajalise liikide rohkuse ja nende täieliku paljunemissuutlikkuse säilimise • Inimtekkeline eutrofeerumine, eelkõige selle negatiivsed mõjud, nagu bioloogilise mitmekesisuse vähenemine, ökosüsteemi seisundi halvenemine, vetikate kahjulik õitsemine ja hapnikunappus põhjavetes, on minimeeritud • Merepõhja terviklikkus on tasemel, mis kindlustab ökosüsteemide funktsioneerimise ja struktuuri ning selle, et eelkõige merepõhja ökosüsteemid ei ole kahjustatud • Merevee hüdrograafiliste tingimuste püsival muutusel ei ole negatiivset mõju mere ökosüsteemidele • Saasteainete kontsentratsioon on tasemel, mis ei põhjusta saastumisest tulenevaid mõjusid • Saasteained kalades ja muudes inimtarbimiseks ette nähtud mereandides ei ületa ühenduse õigusaktide või muude asjakohaste standarditega kehtestatud tasemeid 27 https://www.hm.ee/sites/default/files/strateegia2020.pdf 28 http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0248:FIN:ET:HTML 29 https://www.envir.ee/et/eesmargid -tegevused/merekeskkonna-kaitse/merestrateegia 14 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm • Mereprahi omadused ja kogus ei kahjusta ranniku- ja merekeskkonda • Energia keskkonda juhtimine, sealhulgas veealune müra, on tasemel, mis ei kahjusta merekeskkonda. Merestrateegia meetmekava raames välja töötatud täiendavate meetmete kohaselt tuleb soodustada veeldatud maagaasi (LNG) kasutamist laev akütusena. Tähelepanu tuleb pöörata merel punkerdamisega kaasnevate riskide ohjamisele ja laevadelt puhastamata reovee merevette juhtimise vähendamisele. Avalike teenuste korraldamise roheline raamat 30 Avalike teenuste korraldamise rohelise raamatu tegevused aitavad sarnaselt infoühiskonna arengukavaga vähendada sundliikumisi, vähendades sundi ametiasutusi külastada või pakkudes avalikku teenust kättesaadavamas asukohas. 3 KESKKONNAMÕJU STRATEEGILISE HINDAMISE METOODIKA KSH protsessi läbiviimisel (sh KHS programmi ja aruande koostamisel) lähtutakse keskkonnamõju hindamise ja keskkonnajuhtimissüsteemi seaduse (KeHJS) nõuetest ning väljakujunenud praktikast. KSH eesmärk on muuta strateegiliste otsuste ehk arengukava kvaliteeti paremaks. Selleks analüüsib KSH arengukava põhimõtteid ja kavandatud tegevusi ning pakub välja meetmeid soodsate keskkonnamõjude võimendamiseks ning ebasoodsate mõjude vältimiseks, ennetamiseks ja leevendamiseks. Et KSH sisend arengukavasse oleks asjakohane, arvestatakse hindamisel ja ettepanekute esitamisel arengukava üldistusastmest. Lisaks sisulisele hindamisele on KSH-l oluline roll erinevate osapoolte kaasamisel ning KSH protsessi korrektsel dokumenteerimisel. KSH aruande koostamisel on metoodilises mõttes eristatavad kolm erinevat hindamise etappi: ▪ Vastavusanalüüs; ▪ Välismõjude analüüs; ▪ Leevendavate meetmete pakkumine. Alljärgnevalt kirjeldatakse iga hindamisetapiga seotud tegevusi detailsemalt hetkel teadaoleva info põhjal. Lõplikult täpsustub metoodika KSH käigus, kui on selgunud ka arengukava ülesehitus, käsitlusala ja sisu (sh meetmed, tulemusindikaatorid jms). Täpne kasutatav metoodika kooskõlastatakse eelnevalt ka aren gukava koostamise korraldajaga. VASTAVUSANALÜÜS Vastavusanalüüsi koostamiseks võrreldakse arengukavas välja pakutud strateegilisi eesmärke ja meetmeid rahvusvaheliste, Euroopa Liidu või riiklike keskkonnakaitse eesmärkidega ning selgitatakse, kas transpordi ja liikuvuse arengukava eesmärgid ja sisu aitavad või ei aita kaasa oluliste keskkonnaeesmärkide saavutamisele. 30 https://www.mkm.ee/sites/default/files/avalike_teenuste_korraldamise_roheline_raamat.pdf www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 15 Keskkonnamõju strateegilise hindamise programm Analüüsis käsitletavad dokumendid ning strateegilised eesmärgid, samuti vastavusanalüüsi esitamise vorm täpsustub sõltuvalt arengukava ülesehitusest KSH aruande koostamise käigus. VÄLISMÕJUDE ANALÜÜS EHK KESKKONNAMÕJUDE PROGNOOSIMINE Välismõjude analüüsi raames selgitatakse välja, kas arengukava eesmärgi ja valdkondlike alaeesmärkide saavutamiseks väljatöötatud instrumendid ja tegevused avaldavad keskkonnale (sh inimese tervisele) olulist ebasoodsat või soodsat mõju. Välismõjude analüüsile eelneb eeldatavalt mõjutatava keskkonna kirjelduse koostamine asjakohases mahus. Täpne analüüsitavate teemade loetelu selgub KSH käigus , kui on valminud ka arengukava sisu, esialgne loetelu on esitatud peatükis 5. Seejuures tuleb tähele panna, et mõjusid on võimalik hinnata täpsusastmes, mis vastab arengukava enda täpsusastmele – konkreetsemalt saab võimalikku mõju määratleda juhul, kui arengukavas nähakse ette konkreetseid tegevusi (projekte, meetmeid) kindlas asukohas. (St, teemades, mida arengukavaga ei reguleerita, ei ole käesoleva KSH käigus tõenäoliselt võimalik detailsemalt hinnata ka keskkonnamõjusid.) Välismõjude analüüsi läbiviimiseks kasutatakse ennekõike kvalitatiivset (kirjeldavat) hindamist. Vajadusel on võimalik kasutada ka kvantitatiivset hindamist, aga seda vaid juhul kui arengukavaga kavandatavate tegevuste täpsusaste seda võimaldab. Mõju hinnangud antakse kasutades olemasolevaid materjale, arengukavale ja KSH-le eelnevalt või nende koostamise käigus ei ole kavas läbi viia valdkondlikke eriuuringuid Natura mõju hindamine Arengukavaga kaasnevate mõjude hindamine rahvusvahelisele Natura 2000 võrgustikule viiakse läbi vastavalt loodusdirektiivi artikli 6 lõigetele 3 ja 4 ning KEHJS-e § 29 alusel. Hindamisel tuginetakse juhendile "Juhised Natura hindamise läbiviimiseks loodusdirektiivi artikli 6 lõike 3 rakendamisel Eestis" (KeMÜ, koost 2017) , lisaks lähtutakse Natura mõju hindamise juhendi täiendustest, mis on programmi koostamise hetkel koostamisel. Natura hindamine viiakse vajalikus ulatuses (eelhindamine, asjakohane hindamine jne) läbi KSH aruande koostamise etapis, vastavuses arengukava täpsusastmega. Kui Natura eelhindamise tulemusena selgub, et arengukava elluviimise mõju Natura 2000 aladele ei ole välistatud, tuleb arengukava KSH käigus läbi viia ka Natura asjakohane hindamine. Natura asjakohase hindamise käigus saab vajadusel välja töötada alternatiivseid lahendusi ja leevendavaid meetmeid, seades arendustegevusele täiendavaid tingimusi. Arengukava kui kõrgema strateegilise planeerimisdokumendi Natura asjakohase hindamise puhul peetakse silmas, et hindamise ulatus ja põhjalikkus oleksid proportsionaalsed strateegilise planeerimisdokumendi ulatusega. KESKKONNAMÕJU VÄLTIMISE, ENNETAMISE JA LEEVEND AMISE MEETMED Vastavusanalüüsi käigus leitud mittevastavuste parandamiseks ning välismõjude analüüsi käigus leitud olulise ebasoodsa keskkonnamõju vältimiseks ja vähendamiseks pakutakse välja keskkonna leevendusmeetmeid. Leevendusmeetmed võivad olla kas m õjusid vältivad või leevendavad, regulatiivset või teavituslikku laadi . Strateegilise planeerimisdokumendi elluviimise kaasneva olulise keskkonnamõju seireks ja keskkonnameetmete tõhususe jälgimiseks pakutakse välja seiremeetmed, mis on soovitav integreerida arengukavasse. Leevendavate meetmete all tuuakse ka välja , kas ja mis juhtudel on vaja keskkonnamõju edaspidi (planeeringute, projektide, tegevusloa tasandil) üksikasjalikumalt hinnata. 16 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm 4 ARENGUKAVA ELLUVIIMISEGA EELDATAVALT KAASNEV KESKKONNAMÕJU KSH aruande koostamisel ja vormistamisel lähtutakse seadusandlusest - eeskätt KeHJS § 40 nõuetest, heakskiidetud keskkonnamõju hindamise programmist, võttes arvesse üldtunnustatud keskkonnamõju strateegilise hindamise alaseid teadmisi ja hindamismetoodikat. Arengukava koostamine ning KSH protsess toimuvad paralleelselt ning k äesoleva KSH programmi koostamise ajal on arengukava koostamine alles algusjärgus , suuresti teadmata on veel arengukava sisu ning tegelikult on mõnevõrra ebaselge veel ka arengukava detailsuse aste. Arvestades ka arengukavaga mõjutatava ala suurust ning võimalike erinevate planeeritavate tegevuste hulka, pole eeldatavalt kaasnevat keskkonnamõju KSH programmis kuigi täpselt võimalik ette näha. Tulenevalt arengukava valdkonnast, eelmise Transpordi arengukava (2014-2020) keskkonnamõju strateegilise hindamise järeldustest ning asjaomastelt asutustelt saadud seisukohtadest, võib siiski anda esialgse loetelu eeldatavasti või potentsiaalselt olulistest ja KSH aruandes käsitlemist vajavatest teemadest. Mõju looduskeskkonnale: ▪ Mõju kliimamuutusele (kasvuhoonegaaside emissioonid ja energiakulu); ▪ Mõju loodusressursside kasutusele (ressursi- ja maakasutus, merepõhja kasutus); ▪ Mõju bioloogilisele mitmekesisusele (sh maakasutus ja ökoloogiliselt tundlike alade fragmenteerumine, liikide või koosluste kahjustumine v õi kadu, rohevõrgustik ja loomade liikumiskoridorid), kaitstavatele loodusobjektidele, sh Natura 2000 võrgustikule 31; ▪ Mõju veekeskkonnale (põhjavesi; veeressursid, mida mõjutatakse; erinevate heitainete (saasteained, jää- ja libedustõrje) mõju vee kvaliteedile; mõju mereelustikule (sh võõrliigid, meremüra, hüdrograafilised muutused, mereprügi ja -reostus); sinivõrgustik), ▪ Mõju pinnasele (võimalikud reostused). Mõju inimesele/sotsiaalsele keskkonnale: ▪ Mõju ruumi (sh elukeskkond) kvaliteedile ▪ Mõju inimese tervisele; ▪ Müra ja vibratsiooni levik ja mõjutatud elanikkond; ▪ Mõju lokaalsele õhusaastele (sh tolm, selles sisalduvaid peenosakesed PM10 ja PM2,5); ▪ Mõju erinevate sotsiaalsete gruppide lõikes, piirkondade killustumine; ▪ Mõju kultuuripärandile (sh visuaalne mõju); ▪ Kliimamuutuste mõju (üleujutused, tormid, põud). Aga nagu eespool öeldud, täpsustub Strateegilise dokumendi elluviimisega eeldatavalt kaasneva keskkonnamõju iseloom, ulatus ja ka indikaatorite valik arengukava koostamise ja mõjude hindamise käigus. Ning nagu ptk 3 selgitatud, tuleb ülal esitatud loetelu puhul silmas pidada, et mõjusid on võimalik hinnata täpsusastmes, mis vastab arengukava enda täpsusastmele – konkreetsemalt saab võimalikku mõju määratleda juhul, kui arengukavas nähakse ette konkreetseid tegevusi (projekte, meetmeid) kindlas asukohas. 31 Natura hindamine vormistatakse oma protseduuri ja hinnangust tulenevate õiguslike tagajärgede tõttu eraldiseisva (ala)peatükina www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 17 Keskkonnamõju strateegilise hindamise programm 5 MÕJUTATUD JA HUVITATUD OSAPOOLTE KAASAMINE Strateegilise planeerimisdokumendi KSH protsessi etappide ja tulemuste teavitamise kohustus on KeHJS-ega pandud strateegilise planeerimisdokumendi korraldajale. Isikud ja asutused, keda strateegilise planeerimisdokumendi alusel kavandatav tegevus võib eeldatavalt mõjutada või kellel võib olla põhjendatud huvi selle strateegilise planeerimisdokumendi vastu, on esialgsetel andmetel : ▪ Vabariigi Valitsus ▪ Riigikantselei ▪ Rahandusministeerium ▪ Riigikogu ▪ Majandus- ja Kommunikatsiooniministeerium ▪ Arengukava koostamise juhtrühm ▪ Arengukava koostamises osalevate töörühmade liikmed ▪ Keskkonnaministeerium, Siseministeerium, Maaeluministeerium, Sotsiaalministeerium ▪ Välisministeerium, Kaitseministeerium, Rahandusministeerium, Haridus - ja Teadusministeerium, Kultuuriministeerium ▪ Keskkonnaamet ▪ Valitsusvälised (ettevõtlusega ja keskkonnakaitsega tegelevad) organisatsioonid (sh Eesti Keskkonnaühenduste Koda, EAS) ja kodanikeühendused ▪ Arengukava koostamisse kaasatud osapooled (keda pole eespool eraldi nimetatud) ▪ Laiem avalikkus. Mõjutatud ja huvitatud osapoolte teavitamine KSH protsessi etappidest ja tulemustest toimub vastavalt KeHJS-e nõuetele. Vastavalt seadusele teavitatakse KSH dokumentatsiooni avalikustamisest laiemat avalikkust kuulutusega ajalehes, arengukava koostaja veebilehel ning väljaandes Ametlikud Teadaanded; huvitatud või mõjutatud institutsioone elektrooniliselt. Avalikkuse kaasamisega KSH ja arengukava protsessis tegeleb strateegilise planeerimisdokumendi koostamise korraldaja, kelleks on Majandus - ja kommunikatsiooniministeerium. Juhul kui KSH protsessi käigus ilmneb piiriülese keskkonnamõju hindamise võimalikkus, teavitab Keskkonnaministeerium mõjutatavat riiki vastavalt KeHJS § 46 nõuetele. ASJAOMASTE ASUTUSTE SEISUKOHAD Vastavalt KeHJS § 36 1 . lg (1) peab strateegilise planeerimisdokumendi koostamise korraldaja enne programmi avalikustamist küsima programmi sisu kohta seisukohta kõikidelt asjaomastelt asutustelt. Käesoleva programmi sisu osas küsiti (18.12.2019) seisukohti järgmistelt asutustelt: Keskkonnaministeerium, Rahandusministeerium, Kaitseministeerium, Maaeluministeerium, Kultuuriministeerium, Siseministeerium, Sotsiaalministeerium, Keskkonnaamet, Lennuamet, Maanteeamet, Tarbijakaitse ja Tehnilise Järelevalve Amet ja Veeteede Amet. Laekunud seisukohad on lisatud programmile Lisas 2.1. Lisas 2.2 on esitatud tabel, mis annab ülevaate laekunud seisukohtadega arvestamisest. 18 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm KSH PROGRAMMI AVALIKUSTAMINE Vastavalt KeHJS § 37 korraldati KSH programmi avalik väljapanek ja avalik arutelu. Avalik väljapanek toimus 20.02.2020 - 06.03.2020 ning avalik arutelu 09.03.2020, kell 10.00 Majandus- ja Kommunikatsiooniministeeriumis. Avaliku arutelu protokoll on lisatud Lisas 3.1, avaliku arutelu slaidiesitlus Lisas 3.2. Avaliku väljapaneku ajal ning avalikul arutelul programmi sisu osas ettepanekuid ei esitatud. 6 KSH LÄBIVIIMISE AJAKAVA Keskkonnamõju strateegilise hindamise ja selle tulemuste avalikustamise eeldatav ajakava on esitatud tabelis 1. Seejuures tuleb märkida, et tegemist on käesoleva programmi koostamise hetkel prognoositava ajakavaga, mis võib protsessi vältel täp sustuda ja muutuda, vastavalt reaalsetele arengutele arengukava ja KSH töös. Tabel 1. KSH orienteeruv ajakava Etapp Periood KSH algatamine 14.11.2019 KSH programmi koostamine Oktoober - november 2019 KSH programmi osas asjaomastelt asutuste Detsember 2019 seisukohtade küsimine KSH programmi täiendamine vastavalt asjaomaste Jaanuar - veebruar 2020 asutuste seisukohtadele; parandatud ja täiendatud KSH programmi kontroll KSH programmi avalik väljapanek ning avaliku arutelu Veebruar - märts 2020 läbiviimine KSH programmi kohta esitatud Märts - aprill 2020 ettepanekute/vastuväidete arvestamise või mittearvestamise põhjendused; KSH programmi täiendamine KSH programmi nõuetele vastavuse kontroll Aprill 2020 KSH aruande koostamine Märts - juuni 2020 KSH aruande kontroll ja seisukohtade küsimine Juuli - augusti algus 2020 Laekunud seisukohadele vastamine, KSH aruande Augusti lõpp - septembri algus täiendamine vastavalt asjaomaste asutuste 2020 seisukohtadele KSH aruande nõuetele vastavuse kontroll Septembri algus - keskpaik 2020 KSH aruande avalik väljapanek ning avalike arutelude KSH aruande avalik väljapanek - läbiviimine septembri keskpaik-oktoobri algus 2020, millele järgneb avalik arutelu KSH aruande täiendamine Oktoobri algus - oktoobri keskpaik 2020 KSH aruande vastavuse kontroll ja asjaomaste Oktoobri keskpaik - novembri lõpp asutuste kooskõlastamine 2020 www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 19 Keskkonnamõju strateegilise hindamise programm 7 STRATEEGILISE PLANEERIMISDOKUMENDI KOOSTAJA JA KSH EKSPERTRÜHMA KOOSSEIS Strateegilise planeerimisdokumendi algataja ja koostamise korraldaja: Majandus- ja Kommunikatsiooniministeerium Suur-Ameerika 1, 10122, Tallinn E-post: [email protected] Tel: (+372) 625 6342 Kontaktisik: Juku Paulus E-post: [email protected] Tel. (+372) 639 7689 Kontaktisik: Ursula Sarnet E-post: [email protected] Tel. (+372) 715 3404 Kontaktisik: Indrek Gailan E-post: [email protected] Tel. (+372) 639 7664 KSH koostajad: Hendrikson & Ko OÜ Raekoja plats 8, , 51004 Tartu E-post: [email protected] Tel: (+372) 740 9800 Kontaktisik: Jaak Järvekülg E-post: [email protected] Tel: (+372) 55674693 Stockholmi Keskkonnainstituudi Tallinna Keskus (SEI Tallinn) Erika 14 (Arsenali Keskus), 10416 Tallinn E-post: [email protected] Tel: (+372) 6276100 Kontaktisik: Madis Org E-post: [email protected] Tel: (+372) 6276103 KSH ekspertrühm koosneb järgmistest liikmetest (sulgudes on välja toodud valdkonnad, mida ekspertrühma liige eelkõige hindab): Jaak Järvekülg - Juhtekspert, metoodikate valik, projekti sisuline juhtimine ja menetlustoimingute nõustamine, mõjude hindamine Madis Org – Kliimaekspert (mõju kliimamuutustele, säästev areng) Kadri Auväärt – Keskkonnaekspert, vastavus strateegilistele eesmärkidele, välismõjude hindamine (mõju veekeskkonnale, mõju pinnasele) Ann Ideon – Sotsiaalsete ja kultuuriliste mõjude ekspert (mõju ruumi kvaliteedile, mõju erinevate sotsiaalsete gruppide lõikes, piirkondade killustumine, mõju kultuu ripärandile, visuaalne mõju) Martin Ruul – Keskkonnaekspert, mõjude hindamine (kliimamõjud, mõju loodusressursside kasutusele, mõju inimese tervisele) Kaile Eschbaum – Keskkonnaspetsialist (mõju bioloogilisele mitmekesisusele, sh Natura) Veiko Kärbla – Keskkonnaspetsialist (müra ja vibratsioon, lokaalne õhusaaste) Merlin Rehema – Keskkonnasäästliku liikuvuse ekspert Ethel Simmul – Keskkonnaspetsialist, osalemine mõjude hindamises (mõju veekeskkonnale). 20 Transpordi ja liikuvuse arengukava aastateks 2021-2030 Keskkonnamõju strateegilise hindamise programm Töörühma koosseis täpsustub vajadusel lähtuvalt arengukava sisust ja KSH aruandes enam käsitlemist vajavatest teemadest arengukava ja KSH koostamise protsessi vältel. Käesoleva KSH programmi dokumendi allkirjastamisega juhtekspert Jaak Järvekülg kinnit ab, et vastab KeHJS §34 lg 4 punktides 1 –5 esitatud nõuetele, tunneb keskkonnamõju strateegilise hindamise põhimõtteid, protseduuri ja hindamisega seonduvaid õigusakte ning on keskkonnamõju strateegilisel hindamisel erapooletu ja objektiivne. / Allkirjastatud digitaalselt / …………………………………….. www.hendrikson.ee Transpordi ja liikuvuse arengukava aastateks 2021-2030 21 Keskkonnamõju strateegilise hindamise programm LISA 1.1 „TRANSPORDI JA LIIKUVUSE ARENGUKAVA AASTATEKS 2021-2030“ KSH ALGATAMISE KÄSKKIRI Transpordi ja liikuvuse arengukava aastateks 2021-2030 23 Keskkonnamõju strateegilise hindamise programm LISA 1.2 TRANSPORDI ARENGUKAVA 2014- 2020 TULEMUSTE LÜHIANALÜÜS Transpordi ja liikuvuse arengukava aastateks 2021-2030 25 Keskkonnamõju strateegilise hindamise programm LISA 1.3 TRANSPORDI JA LIIKUVUSE ARENGUKAVA 2021–2030 KOOSTAMISE ETTEPANEK Transpordi ja liikuvuse arengukava aastateks 2021-2030 27 Keskkonnamõju strateegilise hindamise programm LISA 2.1 ASJAOMASTE ASUTUSTE SEISUKOHAD KSH PROGRAMMI SISU OSAS Transpordi ja liikuvuse arengukava aastateks 2021-2030 29 Keskkonnamõju strateegilise hindamise programm LISA 2.2 ASJAOMASTE ASUTUSTE SEISUKOHTADEGA ARVESTAMINE Transpordi ja liikuvuse arengukava aastateks 2021-2030 31 Keskkonnamõju strateegilise hindamise programm LISA 3.1 KSH PROGRAMMI AVALIKU ARUTELU PROTOKOLL Transpordi ja liikuvuse arengukava aastateks 2021-2030 33 Keskkonnamõju strateegilise hindamise programm LISA 3.2 KSH PROGRAMMI AVALIKU ARUTELU PROTOKOLLI LISA – PROGRAMMI SISU TUTVUSTAV SLAIDIETTEKANNE  CPB Corporate Partnership Board The Future of Passenger Mobility and Goods Transport in Estonia Input Study for the Estonian Case-Specific Policy Analysis Transport and Mobility Master Plan The Future of Passenger Mobility and Goods Transport in Estonia Input Study for the Estonian Case-Specific Policy Analysis Transport and Mobility Master Plan  The International Transport Forum The International Transport Forum is an intergovernmental organisation with 62 member countries. It acts as a think tank for transport policy and organises the Annual Summit of transport ministers. ITF is the only global body that covers all transport modes. The ITF is politically autonomous and administratively integrated with the OECD. The ITF works for transport policies that improve peoples’ lives. Our mission is to foster a deeper understanding of the role of transport in economic growth, environmental sustainability and social inclusion and to raise the public profile of transport policy. The ITF organises global dialogue for better transport. We act as a platform for discussion and pre- negotiation of policy issues across all transport modes. We analyse trends, share knowledge and promote exchange among transport decision-makers and civil society. The ITF’s Annual Summit is the world’s largest gathering of transport ministers and the leading global platform for dialogue on transport policy. The Members of the Forum are: Albania, Armenia, Argentina, Australia, Austria, Azerbaijan, Belarus, Belgium, Bosnia and Herzegovina, Bulgaria, Canada, Chile, China (People’s Republic of), Croatia, Czech Republic, Denmark, Estonia, Finland, France, Georgia, Germany, Greece, Hungary, Iceland, India, Ireland, Israel, Italy, Japan, Kazakhstan, Korea, Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Mexico, Republic of Moldova, Mongolia, Montenegro, Morocco, the Netherlands, New Zealand, North Macedonia, Norway, Poland, Portugal, Romania, Russian Federation, Serbia, Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Tunisia, Turkey, Ukraine, the United Arab Emirates, the United Kingdom, the United States and Uzbekistan. International Transport Forum 2 rue André Pascal F-75775 Paris Cedex 16 [email protected] www.itf-oecd.org Case-Specific Policy Analysis Reports The ITF’s Case-Specific Policy Analysis series presents topical studies on specific issues carried out by the ITF in agreement with local institutions. Any findings, interpretations and conclusions expressed herein are those of the authors and do not necessarily reflect the views of the International Transport Forum or the OECD. Neither the OECD, ITF nor the authors guarantee the accuracy of any data or other information contained in this publication and accept no responsibility whatsoever for any consequence of their use. This work is published under the responsibility of the Secretary-General of the ITF. This document, as well as any data and map included herein, are without prejudice to the status of or sovereignty over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or area. Cite this work as: ITF (2020), “The Future of Passenger Mobility and Goods Transport in Estonia: Input Study for the Estonian Transport and Mobility Master Plan”, International Transport Forum Policy Papers, No. 78, OECD Publishing, Paris.  Foreword Transport allows people and goods to move freely and offers broad access to services. It is a cornerstone of European integration and a major contributor to the European Union’s economy, connecting people across different regions and countries. Demand for mobility has traditionally grown as economies and societies have become more integrated, bringing innovation and investment opportunities. Yet, crises like the Covid-19 pandemic reversed this trend and threaten connectivity, thus confronting citizens, businesses and authorities with unprecedented challenges. A fully recovered and resilient transport sector will play an important role in the climate transition and the digital transformation. Developing sustainable and smart mobility solutions will be a key part of the European Green Deal. Estonia was one of the first countries to make use of the EU’s Structural Reform Support Programme (SRSP). The SRSP provides tailor-made, demand-driven technical support to EU countries for the design and implementation of growth-enhancing reforms. Estonia requested SRSP support in 2018 to pursue, among other things, an ambitious range of preparations for a new National Transport and Mobility Master Plan. This report, prepared by the International Transport Forum at the OECD in cooperation with the European Commission’s Directorate General for Structural Reform Support (DG REFORM), is a key input to the plan. The most tangible parts of a transport plan relate to decisions to construct infrastructure. What road or rail project should be built to improve the mobility of citizens? What will make freight flows more seamless? Yet infrastructure investments represent only the tail end of transport policy-making, and an ambitious transport investment programme alone does not, in itself, signal reform. Investment programmes are based on a whole set of choices. These choices depend on the way policy decisions are made, how the transport sector is organised, and what incentives infrastructure managers and infrastructure users face. This report focuses on each of these three aspects of strategic planning and policy making, and across all transport modes. It proposes substantive reforms in each area. It rests on rigorous and in-depth analysis, both qualitative and quantitative. The parameters were determined jointly with the Estonian Ministry of Economic Affairs and Communications, the country’s line ministry for transport. The report does not attempt a comprehensive description of Estonia’s current transport and mobility system, notably those areas that work well. Rather, it focusses on existing issues and on ways to address them. To this end, it provides a simulation tool as a strategic model to help inform Estonia’s transport policy decisions while a fully specified national transport model is being built. The transport carbon footprint in Estonia can be substantially reduced, depending on how ambitious the country wants to be in the decades to come. The simulations for this study show that achieving this (and other major policy goals) will mean building fewer roads and motivating citizens to walk, cycle and use public transport more. The vision for the future of freight transport is less clear. The greatest challenge will be to reposition Estonia as a bridge between the Baltic region and Southern Europe. Success hinges decisively on whether Estonia can align its interests with those of its neighbours; simply building more infrastructure will not suffice. At the same time, pursuing this shift should not lead Estonia to compromise transport decarbonisation or jeopardise the recovery of infrastructure costs from fee-paying transit traffic. The Rail Baltica project, once completed, is planned to boost both regional connectivity and freight decarbonisation. As the work for this report was being finalised, the Covid-19 pandemic swept the globe. This unprecedented health crisis has fundamentally disrupted the lives of citizens and the economy. The massive, but hopefully temporary, challenges created by the Coronavirus crisis became apparent too late to fully reflect them in the analysis. However, as robust data on the impact of the pandemic become available, the simulation tool provided together with this report will enable Estonia’s government to update the scenarios for the country’s transport future presented herein. Young Tae Kim Henrik Hololei Mario Nava Secretary-General Director-General for Director-General for International Transport Forum Transport and Mobility Structural Reform Support OECD European Commission European Commission  ACKNOWLEDGEMENTS Acknowledgements This project was managed and co-drafted by Dejan Makovšek and Eric Jeanniere, with contributions by Rex Deighton-Smith, Jagoda Egeland, Malithi Fernando, Francisco Furtado, Lucie Kirstein, Juliette Lassman, Peter Mackie, Luis Martinez, Olaf Merk, Tatiana Samsonova, Katja Schechtner, Klaas Westerkamp, Elisabeth Windisch and Tom Worsley. Jari Kauppila and Stephen Perkins provided quality assurance. The ITF communications team, Michael Kloth, Edwina Collins and Hilary Gaboriau, prepared the report for publication. We also wish to acknowledge the support of the Estonian government, in particular Johann Peetre, and many officials of the European Commission, who facilitated effective co-operation, participated in the interviews or provided feedback on the draft outputs of this project. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 5 TABLE OF CONTENTS Table of contents Glossary ........................................................................................................................................ 10 List of abbreviations ..................................................................................................................... 12 Executive summary....................................................................................................................... 14 Chapter 1. Report overview and main messages .......................................................................... 18 1.1. Which policy reforms should have priority? ................................................................. 18 1.2. How should reform progress be measured and communicated? ................................. 26 1.3. How ambitious must transport policy reforms be to achieve significant progress? ..... 27 Notes ............................................................................................................................................ 29 References.................................................................................................................................... 30 Chapter 2. Assessment of key transport policy areas ................................................................... 31 2.1. Institutional structure ................................................................................................... 31 2.2. Infrastructure planning and project selection ............................................................... 41 2.3. Infrastructure procurement .......................................................................................... 51 2.4. Infrastructure funding and the role of private finance .................................................. 59 2.5. Steering user behaviour and public transport policy..................................................... 67 2.6. Rail freight and infrastructure ....................................................................................... 80 2.7. Road freight regulation ................................................................................................. 90 2.8. Maritime policy ............................................................................................................. 97 2.9. Aviation policy ............................................................................................................. 105 2.10. Future mobility: Adapting to technological and climate changes ............................. 111 Notes .......................................................................................................................................... 127 References.................................................................................................................................. 129 Chapter 3. Transport policy objectives and measuring progress ................................................ 139 3.1. Defining transport policy objectives ........................................................................... 139 3.2. Defining indicator frameworks.................................................................................... 140 3.3. Developing a transport policy indicator framework for Estonia ................................. 141 Notes .......................................................................................................................................... 149 References.................................................................................................................................. 150 Annex 3.1. Interaction of the indicator framework with the EU-wide transport objectives ......... 151 Chapter 4. Reforms and transport policy scenarios: How progressive does Estonia want to be? .................................................................................................................... 154 4.1. Policy scenarios to assess the impact of reforms ........................................................ 155 4.2. Urban passenger transport in high and low ambition scenarios ................................. 161 4.3. National passenger transport in high and low ambition scenarios.............................. 168 4.4. International passenger transport in high and low ambition scenarios ...................... 175 6 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  TABLE OF CONTENTS 4.5. Freight transport in high and low ambition scenarios ................................................. 176 4.6. Prioritising policy reforms to meet policy goals .......................................................... 178 References.................................................................................................................................. 180 Annex 4.1. Building strategic models .......................................................................................... 181 Annex 4.2. Affordability and accessibility modelling results ........................................................ 185 Figures Figure 1. Proposed institutional structure for the Estonian Transport Sector................................ 35 Figure 2. Major project assessment .............................................................................................. 45 Figure 3. Final value versus contract award price for road contracts for the period 2007-17........ 52 Figure 4. The state-owned infrastructure manager....................................................................... 64 Figure 5. Diesel and petrol excise duties in EU member states, May 2020 .................................... 69 Figure 6. Total tonnes of CO2 emitted by mode of passenger transport in Estonia ....................... 72 Figure 7. Rail freight activity trends in Estonia, 2007-18 ............................................................... 82 Figure 8. International freight exchange relationship by country for Estonian rail and road sectors, 2018 ........................................................................................................... 83 Figure 9. Rail Freight access charges by European Union country, 2016 ....................................... 84 Figure 10. Greenhouse gas emissions per capita, 2017................................................................. 86 Figure 11. Percentage change in tonnes moved by rail, containers vs all goods............................ 88 Figure 12. Overall revenue-to-cost ratio for road freight transport in the European Union, Norway, Switzerland, the United States, Canada and Japan in 2016 ............................................. 92 Figure 13. Fuel excise duties in European Union member states, July 2019.................................. 93 Figure 14. Fuel excise duties in European Union member states, May 2020 ................................. 93 Figure 15. Cargo volumes in Estonian ports, 2002-18 ................................................................... 98 Figure 16. Tonnage tax due per ship according to the ship’s net tonnage................................... 101 Figure 17. Destinations available from Tallinn Airport, summer 2019 schedule .......................... 107 Figure 18. A framework for incorporating climate change adaptation in transport infrastructure planning ............................................................................................................... 124 Figure 19. The United States Government’s Federal Highway Administration vulnerability assessment and adaptation framework .................................................................. 125 Figure 20. Aggregate rail corridors and zone system in the national passenger model for Estonia ....................................................................................................................... 158 Figure 21. Extent of urban model coverage and zoning system in Harju/Rapla ........................... 162 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 7 TABLE OF CONTENTS Figure 22. Daily modal trip share of urban travel by scenario ..................................................... 163 Figure 23. Daily modal passenger kilometre share of urban travel by scenario ........................... 164 Figure 24. Modelled CO2 emissions from urban passenger travel by scenario ............................ 165 Figure 25. Change in daily rail trips by scenario .......................................................................... 168 Figure 26. Daily modal trip share of national passenger travel by scenario ................................. 169 Figure 27. Change in daily rail passenger-kilometres by scenario................................................ 169 Figure 28. Daily passenger-kilometre share of national passenger travel by scenario ................. 170 Figure 29. Daily carbon emissions due to national passenger transport by scenario ................... 171 Figure 30. Change in carbon emission due to national rail travel, tank-to-wheel and well-to-wheel comparison .......................................................................................................... 171 Figure 31. Change in daily carbon emissions due to national car and bus travel by scenario ...... 172 Figure 32. Four-step transport modelling methodology to determine travel demand and calculate CO2 emissions .............................................................................................................. 181 Figure 33. Theoretical example to explain change in average trip lengths per mode .................. 185 Tables Table 1. Transport Policy Indicator Framework – an excerpt ........................................................ 27 Table 2. Key rail freight indicators, comparison with other EU countries ...................................... 81 Table 3. Selected indicators used to measure and report progress made on Estonian transport policy ............................................................................................................ 144 Table 4. Mode-specific selected indicators used to measure and report progress made on Estonian transport policy ............................................................................................................ 146 Table 5. Interaction of the indicator framework with the EU-wide transport objectives ............. 151 Table 6. Modelling urban passenger measures in high and low ambition scenarios.................... 156 Table 7. Modelling national passenger measures in high and low ambition scenarios ................ 158 Table 8. Modelling international passenger and freight measures in high and low ambition scenarios ..................................................................................................................... 160 Table 9. Modelled indicators to track impacts of policy measures on transport outcomes ......... 160 Table 10. Average travel cost per kilometre by mode ................................................................. 166 Table 11. Average travel time per kilometre by mode ................................................................ 167 Table 12. Change in daily rail passenger kilometres by rail corridor and scenario in 2050 .......... 170 Table 13. Road improvement assumptions ................................................................................. 173 8 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  TABLE OF CONTENTS Table 14. Road improvement traffic results per section.............................................................. 174 Table 15. Road improvement traffic results per corridor ............................................................ 174 Table 16. Road improvement affordability results ...................................................................... 175 Table 17. Road improvement tests accessibility results .............................................................. 175 Table 18. Current railway freight activity .................................................................................... 176 Table 19. Illustration of the impact of rail cost reduction using elasticities on theoretical origin-destination pairs............................................................................................................... 177 Table 20. Impact of railway electrification on freight flows by commodity group for the two alternative scenarios............................................................................................................ 177 Table 21. Assumptions regarding CO2 emission factors for diesel and electric freight trains per tonne-kilometre.......................................................................................................... 178 Table 22. Resulting CO2 emissions per railway axis for the two alternative scenarios ................. 178 Table 23. Travel cost of an average trip by mode........................................................................ 186 Table 24. Travel time of an average trip by mode ....................................................................... 187 Table 25. Percentage change in mode shares, affordability, accessibility, and CO2 emissions due to suggested urban policy measures. ................................................................................... 188 Table 26. Summary of main findings from inter-urban models ................................................... 189 Boxes Box 1. Fare-free public transport in Tallinn ................................................................................... 70 Box 2. Decarbonisation of road freight services in the United Kingdom ........................................ 96 Box 3. Future Transport Technology Roadmap of New South Wales .......................................... 118 Box 4. A principles-based approach to regulating new mobility services..................................... 121 Box 5. Adapting transport systems to climate change and extreme weather .............................. 123 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 9 GLOSSARY Glossary Term Definition, description Ability and ease with which passengers and freight can reach destinations by air. This report defines air connectivity as the availability of flights offered by an Air connectivity airport, both directly and indirectly (through providing connecting flights to other airports). Scheme including not only rebates but also higher rates for polluters (e.g. for the Bonus-malus environmental scheme most polluting vessels in ports). The transport of goods or passengers between two places in the same country Cabotage by a transport operator from another country. An EU licence to transport goods by road to or through EU and European Community license Economic Area (EEA) countries. Permits to carry out road freight transport operations to or through European ECMT licenses Conference of Ministers of Transport (ECMT, predecessor to the International Transport Forum) member countries (bilateral and third country transport). Euro class Emission standard for vehicles defined by the EU External costs are costs generated by transport users and not paid by them but by the society as a whole such as congestion, air pollution, climate change, External costs of transport accidents and noise but also up- and down-stream processes, costs for nature and landscape or additional costs in urban areas. High-capacity vehicles are freight trucks that are heavier or longer (or both) than High-capacity vehicles vehicles currently permitted on the general road network. The Logistics Performance Index is an interactive benchmarking tool created by the World Bank to help countries identify the challenges and opportunities they Logistics Performance Index face in their performance on trade logistics and what they can do to improve their performance. The LPI is based on a worldwide survey of operators on the ground (global freight forwarders and express carriers), The European Commission's Mobility Package is a collection of three initiatives concerning the governance of commercial road transport in the European Union. Mobility Package It represents the biggest change to EU road transport rules, covering many aspects of the industry's activities. An Origin-destination market for a particular airport is defined as passenger Origin-destination market demand for travelling to (the destination “D”) and from (the origin “O”) that particular airport. A principle that holds polluters responsible for bearing the costs of managing Polluter pays principle pollution to prevent negative effects on human health or the environment. A database that records key data with regard to procurement procedures and Procurement register results (e.g. type of tendering procedure, number of bidders, estimated tender value, winning bid, etc.) Rail Baltica is a greenfield rail transport infrastructure project with a goal to integrate the Baltic States in the European rail network. The project includes five Rail Baltica European Union countries – Poland, Lithuania, Latvia, Estonia and, indirectly, Finland. It will connect Helsinki, Tallinn, Pärnu, Riga, Panevežys, Kaunas, Vilnius and Warsaw. 10 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  GLOSSARY Surface access Ground and water access to airports. A tonnage tax calculates the amount of taxable income on the basis of the net Tonnage tax tonnage of eligible vessels. Train kilometre is a unit measuring the movement of a train over one kilometre Train-kilometre (distance actually travelled). Twenty-foot Equivalent Unit is a unit of cargo to measure volume/capacity. It is Twenty-foot Equivalent Unit equivalent to the volume of a standard 20-foot container. A database that records prices per unit of work or material (e.g. m3 of steel or Unit price database concrete) used in bids in infrastructure (or other) procurement). Vignette is a form of road pricing imposed on vehicles, based on a period of time Vignette the vehicle may use the road, instead of road tolls that are based on distance travelled. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 11 LIST OF ABBREVIATIONS List of abbreviations ACI Airport Council International ATM Air Traffic Movement CAA Civil Aviation Authority CBA Cost-benefit analysis CIS Community of Independent States CNG Compressed natural gas EASA European Aviation Safety Agency ECA Emission Control Area ECAA European Common Aviation Area ECMT European Conference of Ministers of Transport (predecessor to the International Transport Forum) EEA European Economic Area EMS European Modular System ERAA Association of Estonian International Road Carriers EU European Union evkm (charge) Electric vehicle kilometre EVR Estonian Railways EVR Cargo EVR freight train operating subsidiary GDP Gross Domestic Product GHG Greenhouse gases HCV High-capacity vehicle HDM Highway Development and Maintenance HEATCO Harmonised European Approaches for Transport Costing and Project Assessment HELCOM Helsinki Commission for Baltic Marine Environment Protection ICAO International Civil Aviation Organisation IM Infrastructure Manager IMO International Maritime Organisation IRU International Road Transport Union ITF International Transport Forum LPG Liquefied petroleum gas LPI Logistics Performance Index MA Mobility Agency (proposed) MaaS Mobility as a Service 12 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  LIST OF ABBREVIATIONS MEAC Ministry of Economy and Communications MoF Ministry of Finance NOx Nitrogen oxide OD Origin-destination OECD Organisation for Economic Co-operation and Development PIARC World Road Association PM Particulate matter PPP Public-private partnership R&D Research and development RB Rail Baltica RIA Regulatory impact analysis RSA Regulatory and supervisory authority SOE State-owned enterprise SOx Sulphur oxides SUMP Sustainable Urban Mobility Plan TEN-T Trans-European Transport Network TEU Twenty-foot Equivalent Unit tkm Tonne-kilometre TLL Tallinn Airport TRC Technical Resource Centre (proposed) TTJA Consumer Protection and Technical Regulatory Authority TTR Transport Technology Roadmap (proposed) VOCs Volatile organic compounds vtk Vehicle-tonne kilometre THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 13 EXECUTIVE SUMMARY Executive summary What we did This report reviews strategic planning in Estonia’s transport sector to support the development of a new National Transport and Mobility Master Plan. The executive summary provides a high-level overview of main points of the report, while Chapter 1 offers a broader overview and includes references to the relevant sections of the report. The review comprised three elements:  A high-level assessment of ten key aspects of transport policy, agreed with Estonia, with recommendations for reform.  Recommendations on the level at which transport policy objectives ought to be established and how progress towards them should be measured.  Modelling of the impact of selected proposed reforms under different scenarios. The International Transport Forum (ITF) developed a high-level model for the country covering all modes (except aviation) to quantify the scenarios, as Estonia has not yet built a national transport model. The review process for this study combined fact-finding missions to Estonia and a review of Estonian legislation, policy documents and data. It also took account of previous assessments of Estonia’s transport policy and systems undertaken by the European Union (EU), the International Monetary Fund (IMF), the World Bank the OECD and other organisations. What we found Since independence, Estonia has made remarkable economic progress. This has been supported by a strong strategic planning framework across government, with a series of ten-year plans that are periodically updated and form a cohesive framework for investment in key sectors including transport. In recent years, a process of consolidation of plans, ministries and agencies has aimed to improve cross- sectoral co-ordination and consistency. Despite this generally positive context, there is concern that the performance of the domestic transport system and limited international connectivity may impede Estonia’s future economic development. The main issues identified by the review are as follows:  Weaknesses in the processes for project identification, appraisal and selection, which significantly reduce the efficiency of infrastructure expenditure and increases costs.  The current institutional structure contributes to these outcomes. The lack of a strong strategic policy division at the Ministry of Economic Affairs and Communications (MEAC), with high-level technical capacities, is a central concern.  Significant policy risks exist in relation to the Rail Baltica project. There is considerable potential for cost increases, which could test Estonia’s ability to fund other transport priorities.  Systemic issues with infrastructure procurement processes significantly increase infrastructure costs. There are opportunities to use available data to prevent collusive behaviour among bidders. 14 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  EXECUTIVE SUMMARY  The financial sustainability of the public transport system is at risk. The adoption of a fare-free public transport policy has led to revenue losses without increasing the number of people using public transport. The policy, that aims to improve equality by making public transport more affordable for people on lower incomes, has not been effective.  Approaches to user charging are inefficient. Road freight charges in particular rely excessively on fuel taxes. This is an obstacle to funding independence for the road infrastructure management organisation and forfeits the opportunity to unlock new road infrastructure financing approaches.  Opportunities exist for better organising infrastructure asset management and incentivising increased efficiency. Specific additional issues exist in road and rail freight, ports and shipping, and aviation. The most significant is underutilisation of infrastructure with the decline of Russian rail transit traffic and policies to shift the focus to the development of the north-south corridor. What we recommend Do the analysis before making decisions, build transport modelling capacity to support policy making, and communicate progress with easily interpreted performance indicators Estonia should introduce a project planning and selection process in which the analysis supports the decision-making, rather than legitimising decisions already made. The use of transport models will be essential in this process. Modelling can provide essential insights into the functioning of the existing transport system, support good planning for infrastructure and operations. Presently, Estonia does not possess strategic transport modelling capability; developing the basis for such models for the country was one of the main tasks for this project. Garnering support for reforms also requires communicating the performance of the transport system in ways that speak to the experiences of users. Easily understood performance indicators will create transparency, thereby adding credibility for the government’s plans and strengthening the case for future reforms. Reform the institutional structure behind transport policy making. Concentrate strategic planning in one place, create a focus on efficiency incentives, and support independence in decision-making Estonia’s ongoing organisational reform of the transport sector should focus on three objectives: unifying the planning process, rewarding efficiency and ensuring unbiased decision-making. The strategic planning function should be concentrated in a dedicated strategic policy division within the Ministry of Economic Affairs and Communications. This unit would also be responsible for establishing methodological standards for project appraisal and providing advice on project selection to Ministers. Estonia should promote efficiency in the transport sector by introducing incentive regulation, and specifically make more use of the Regulatory Asset Base model. To this end, major transport infrastructure including roads should be managed by state-owned enterprises, rather than by an all-in-one transport authority. The proposed regulatory and supervisory agency should be charged with developing incentives for efficiency (incentive regulation) that should be applied to these companies. Integrate the results of risk analysis into decision-making during project development Continuous risk analysis and professional risk management are indispensable. Risk analysis should serve risk-adjusted estimates of both project cost and benefits, and these should inform decision-making about THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 15 EXECUTIVE SUMMARY important project variables in all stages. This will ensure decision-makers are informed of major risks while these can still be addressed. Upgrade the infrastructure procurement system comprehensively An improved procurement system can greatly reduce infrastructure costs. The focus of reform in Estonia should be on the ability to detect anti-competitive behaviour and on fostering innovative approaches to infrastructure delivery. This requires reforms in several areas in order to achieve a mutually reinforcing effect. The creation of a unit price database should be a priority. Other elements include moving away from the use of lump-sum contracts, co-ordinating the infrastructure procurement pipelines across the transport sector and beyond, and systematically addressing the risks arising from the Rail Baltica project. In the medium term, a major goal should be adoption of comprehensive guidelines for procurement that go beyond the bidder selection stage. Adopt a cautious and strategic approach to the use of Public-Private Partnerships for transport projects Public-Private Partnerships (PPP) for transport infrastructure can only deliver superior value for money under specific circumstances. Only if the infrastructure operator can strongly influence user demand through service quality (in a context where the users are not captive) is this likely. This is often the case for airports and seaports; it is not generally the case for road and rail infrastructure. This is clear from extensive ITF research. Yet PPPs often become the chosen contractual model regardless, for reasons not related to efficiency. One perverse incentive is that some accounting standards do not require payment obligations under PPPs to be recorded as public debt. Improving public procurement and institutional organisation is generally preferable for achieving better infrastructure outcomes than PPPs. Where PPPs are used, this should happen within a comprehensive, best-practice policy framework that includes strong and detailed guidance on how to prepare, procure, and manage PPPs. Extend user charging for transport infrastructure, establishing incentives for sustainable mobility and transport system efficiency Estonia currently makes relatively little use of user charging. Access to road infrastructure is free for passenger vehicles and light-duty trucks. Heavy trucks pay a very low rate for the road-use vignette. Urban public transport fares were recently abolished in many Estonian towns. Steering user choices toward a more efficient and sustainable transport system will require significant pricing reforms. Charges for road freight transport ought to be reformed and the taxation of private vehicles redesigned to encourage the use of more efficient, less polluting vehicles and to nudge car users towards sustainable modes. Public transport pricing should be reintroduced to secure stable funding and allow investment in improving service quality, which is essential to attracting more users. Supporting policies to give more space to walking and cycling are also essential. Only strong price signals and reallocating public space from roads to active modes can achieve a significant mode shift from private cars to public transport, cycling, and walking. This has the potential to reduce the CO2 emissions of road passenger transport by up to 50%, according to modelling results for this study. The renewal of car and bus fleets could add a further 30% reduction. Greater reliance on user charging in conjunction with the institutional reforms will help ensure maintenance and procurement efficiency and unlock new infrastructure financing possibilities A state-owned road infrastructure management company funded mainly by user charges, could finance road infrastructure improvements without its liabilities adding to Estonia’s public debt. A predictable 16 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  EXECUTIVE SUMMARY funding stream that is independent from the public budget will tend to safeguard efficient maintenance and procurement planning. Develop rail freight on north-south links with emphasis on intermodal containers Substantial demand shifts have prompted Estonia’s freight railways to focus on serving goods transport on the north-south corridor instead of east-west bulk commodity trade. The Rail Baltica is expected to play a key role in this strategy. Much work remains to complete this transformation, not least implementing a joint governance model for Rail Baltica to ensure it operates effectively. Critically, Estonia’s rail freight system should adopt to offer efficient intermodal operations so it can capture a part of the international container market. Estonia should not pursue a strategy to become a regional transport hub Estonia should not invest in transport infrastructure simply to attract more transit traffic. Infrastructure investments that create capacity exclusively for transit traffic are hard to justify economically. Transit traffic would need to bear the full cost of the investment and cover a significant portion of the externalities created by transit traffic. Unless these conditions are met, the Estonian taxpayer would effectively be subsidising transit traffic. Furthermore, transit traffic is by its nature volatile, representing an unstable ground on which to base long-term infrastructure decisions. Rail Baltica is an exception to this consideration, as it is likely to benefit from more than 80% co-funding from the European Union. The social value for money should always remain a key consideration, even when cost recovery requirements are relaxed, for example, to contribute to objectives of regional political cohesion. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 17 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES Chapter 1. Report overview and main messages Estonia has made remarkable economic progress since its independence in 1991, with rates of growth in recent years typically exceeding 3% per annum. There is concern, however, that the performance Estonia’s domestic transport system and limited international connectivity may impede the country’s future economic development (OECD, 2019). To better understand the room for improvement in the Estonian transport system. The Ministry of Economic Affairs and Communications (MEAC) collaborated with the International Transport Forum (ITF) to undertake the most comprehensive transport policy review of Estonia to date. This review was financed by the European Union’s Structure Reform Support Programme, with the support of the European Commission. The review consisted of three elements. The first was a high-level assessment of ten selected aspects of transport policy. These were co-determined with Estonia. Issues and recommendations for reform were consequently identified for each. The second was to develop a set of quantitative indicators that can be used to measure progress toward the achievement of the underlying objectives of desired transport policy. The third element of the review was to combine a quantitative analysis of the movement of people and goods in Estonia with reform propositions that could be modelled and to measure their impact on the achievement of the main policy objectives under different scenarios. Estonia has not built a national transport model yet, so a bespoke high-level model was developed for the country, covering road, rail, and sea. A lack of data prevented the inclusion of air transport. The material presented in Chapters 2 – 4 of this report included a supporting analysis, which was presented to Estonia in separate individual reports. The model developed for the country was also delivered to Estonia to inform decision-making until a full national transport model is developed. This chapter summarises the key messages of the report. It commences with the priority reform proposals identified in the ten policy areas, then identifies and explains the relevance of the indicators chosen before setting out the scenario analysis. The recommended reforms are largely systemic in nature, rather than addressing investment priorities at the level of individual projects. This reflects the fact that project selection must be based on strong planning processes to identify priority needs and the application of robust cost-benefit analysis to determine which projects can meet those needs most effectively and efficiently. 1.1. Which policy reforms should have priority? In each of the ten policy areas analysed, we identified first the key issues and then the reforms needed to address them. The following sets out the highest priority reforms within each policy area. A full exposition of the identified issues and proposed reforms can be found in Chapter 2. Institutional structure should consolidate and ensure greater independence of strategic decision-making and instil efficiency incentives Estonia was already in the process of reforming the organisation of its transport sector at the time this review commenced. These reforms broadly follow the Scandinavian model, in which most transport-sector roles are carried out by a single public agency. In the case of Estonia, this was to be the new Mobility Agency. The ITF suggested significant changes to the planned reforms. Our comprehensive proposal is 18 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES captured in Figure 1 (see Chapter 2, Section 2.1 Institutional Structure for a detailed analysis). Here, six key issues are highlighted:  Concentrate the strategic planning function. The strategic planning function is currently dispersed between multiple organisations. It would benefit from being concentrated in a newly established strategic policy division within the Ministry of Economic Affairs and Communications (MEAC). The new division should be responsible for establishing methodological standards for project appraisal via a Technical Resource Centre (TRC) (see below), and for quality assurance of project proposals and appraisals received from the infrastructure management bodies. The division should also be ultimately responsible for the provision of advice on project selection to Ministers.  Provide technical support to bodies that dispense inputs to strategic planning and procure infrastructure. An in-house consultancy within the strategic policy division – the Technical Resource Centre (TRC) would be of great assistance to these bodies. The TRC should provide high- level technical capabilities in key areas, thus supporting MEAC’s ability to undertake high-quality strategic planning and prepare high-quality procurement strategies. One part of this reform is also an improvement in the status of the analysis/advisors working in the strategic policy division, to enable these key units to attract and retain the best people. This includes the creation of the post of the Chief Transport Economist and a Chief Procurement Officer.  Co-ordinate methodologies and infrastructure priorities across sectors. The reforms above address the transport sector alone. A new agency – Infrastructure Estonia – should be established to improve the strategic allocation and co-ordination of infrastructure investment by identifying key infrastructure needs across all sectors and recommending priorities. This can help to determine the amount of infrastructure investment required to be committed over time and to allocate it appropriately between transport and other sectors and identify synergies and co-dependencies. The benefits of the independent infrastructure advisory model, which is becoming increasingly common in OECD countries, flow from its cross-sectoral remit and potential to achieve cross-party support and the continuity needed for long term planning. A result of a high level of independence from government.  Increase the efficiency of the transport sector by introducing incentive regulation, specifically through the Regulatory Asset Base (RAB) model. Rather than creating an all-in-one Transport Authority similar to Trafikverket in Sweden, with a separate Regulatory and Supervisory Agency, Estonia should keep the infrastructure management function separate. All major transport infrastructure (including the roads) should be managed by state-owned enterprises. An incentive regulation function should be established at the regulatory and supervisory agency and applied to these companies. Most have natural monopoly characteristics and should, therefore, be subject to similar incentive frameworks as utilities (e.g. electricity transmission).  Pursue user funding of the state-owned enterprises (SOEs) managing infrastructure to maintain efficiency and unlock new infrastructure financing possibilities. If road infrastructure were managed by an SOE and largely funded by user charges, the road company could finance new road infrastructure against its own balance sheet, with its debt excluded from the Estonian public debt. This would represent a better way to increase investment in infrastructure than bypassing the Maastricht criteria public debt limits through PPPs. Furthermore, a predictable funding stream that is independent of the general budget will tend to safeguard efficient maintenance and procurement planning. The transport taxation sections (2.5 and 2.7; covering passenger and road freight) discuss the merits of introducing electronic distance-based user charges. The railway infrastructure company is already funded through charges for infrastructure use. Cost recovery THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 19 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES levels have declined and currently stand at around 70%. Subsidies to train operators would be preferable to eroding revenues from infrastructure access charges in the pursuit of freight modal shift from road to rail. This would maintain funding independence from the general budget, maintain balance sheet stability and minimise the risk of debt accumulation.  The Mobility Agency should focus on co-ordination between public transport service providers. The role of the proposed Mobility Agency should be more limited than previously envisaged, focusing on public transport-related functions, including ensuring co-ordination between the different public transport services, integration of pricing and ticketing and the procurement of contracts for services subject to compensation under public service obligations (PSOs). Analysis must precede decision-making in infrastructure planning and strategic transport modelling capacity should be enhanced Project appraisal should inform investment decisions, rather than confirm decisions that have already been made. A change in culture is required to achieve this. The analysis cannot replace political judgement (e.g. giving priority to improving infrastructure in region A over region B). Rather, it ensures that those judgements are informed by the best possible information, clarifying the nature of the costs and trade- offs involved (see Chapter 2, Section 2.2 Infrastructure Planning and Project Selection for a detailed analysis). For analysis to assume the necessary role in supporting the decision-making process two key changes are necessary. First, the role and status of transport analysts - experts involved in transport modelling and project appraisal as part of the Transport Resource Centre – must be enhanced. Their head, the Chief Transport Economist should be appointed by, and report directly to, the Minister. Moreover, salary and benefit provisions should allow the Technical Resource Centre to attract the best people. Second, substantial development of infrastructure planning and investment appraisal capabilities is crucial. Estonian authorities received specific recommendations such as strategic modelling tools, prioritisation and project selection, appraisal processes and methodologies, inter-urban modelling and appraisal, urban transport, audit and ex-post evaluation to advance these areas. Integrate the results of risk analysis into decision-making during project development Ongoing risk analysis and risk management are indispensable, particularly in major projects. Their results, however, should not be considered separately from the base cost estimates derived from projects’ design documentation. Risk analysis should be used to prepare risk-adjusted estimates of both project cost and benefits and it is the risk-adjusted numbers that should be used in decision-making and as necessary, in providing updates to the general public (see Chapter 2, Section 2.3 Infrastructure Procurement for a detailed analysis). Failure to do this incentivises a culture in which people will not strive to present the most likely numbers and impacts but rather those that will be accepted with least resistance. This means fewer opportunities for decision-makers to find out about risks and problems at a time they can still be addressed. Upgrade infrastructure procurement approaches, the capabilities of staff, and supporting institutions comprehensively Substantial opportunities exist to reduce the cost of infrastructure, improve the detection of anticompetitive behaviour, and foster innovation in infrastructure delivery. Achieving these improvements 20 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES will require a range of mutually reinforcing reforms (see Chapter 2, Section 2.3 Infrastructure Procurement for a detailed analysis). Immediate priority should be given to the following:  Establish a unit price database, starting with the road sector and eventually covering all public works. A systematic database of unit prices (e.g. cost per m 3 of asphalt, gravel, concrete), is essential for informing future cost estimates and budgets, detecting abnormally low (or high) bids etc.  Abandon across the board use of lump-sum contracts or their derivatives. The road administration adopted this practice to avoid adversarial relationships with bidders and/or contractors. Unfortunately, such contracts substantially increase the cost of infrastructure and should only be used for the simplest works. In addition, the Ministry of Finance should commission an in-depth analysis of infrastructure procurement contract performance and the contracting culture to more precisely identify in what other types of procurement inadequate application of contract formats is an issue.  Analyse the construction market and co-ordinate the infrastructure procurement pipelines across the transport sector and beyond. A construction market analysis will identify how public sector demand affects the Estonian construction sector and its segments. Entities whose demand affects the same segments within and beyond the transport sector should co-ordinate their spending to avoid demand-driven price increases.  Give greater priority to implementing the mitigation plans from Rail Baltica’s risk assessment. The risk assessment for the Estonian part of Rail Baltica identified a series of risks to the project and proposed mitigation measures. Progress has been made, however many of the mitigation measures have still not been adopted. Other reforms that will require more time include developing procurement strategy guidance that goes beyond bidder selection and the professionalisation of the procurement role. In parallel, the Technical Resource Centre, proposed as an institutional reform, should take on the role of a knowledge hub for procurement, as well as planning and investment appraisal. Pursue comprehensive transport sector reforms before considering the limited and targeted use of public-private partnerships Estonia has been considering the use of PPPs in road infrastructure projects. A key motivation appears to be that the European Union will not count the debt incurred through PPPs as part of the Estonian public debt. This is widely regarded as a perverse incentive arising from the European System of Accounts standard, in that it is a poor reason for pursuing PPPs. PPPs should be pursued where they can provide superior value for money to alternative types of procurement or public sector organisation. It is unclear whether PPPs can achieve superior value for money in a wide range of infrastructure contexts. The ITF has recently concluded an international research project on private investment in infrastructure, including PPPs, and procurement more broadly (ITF, 2018). It found that PPPs could deliver superior value for money only under conditions of strongly endogenous demand. These conditions often exist in the case of airports and seaports. However, where they are not met, as in road and rail infrastructure, the use of PPPs is not recommended. Instead, Estonia is encouraged to pursue the reform of the institutional structure of the transport sector, and gradually introduce distance-based user charging. These reforms will allow Estonia to finance new investments in roads off the balance sheet without the use of PPPs. Road THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 21 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES corporations with the same functions already exist in many European countries (see Chapter 2, Section 2.4 Infrastructure Funding and the Role of Private Finance for a detailed analysis). If Estonia does pursue PPPs, it should use a comprehensive, best-practice PPP policy framework that includes strong and detailed guidance. This would imply expanding the recently published Estonian PPP guidance to address several additional factors. These include properly representing what private finance in infrastructure can and cannot achieve supplier de-risking, contract management after project delivery and dealing with the renegotiations. Reform the current transport taxation arrangements to introduce appropriate incentives to underpin efficient infrastructure provision Estonia currently has very little user charging in place, except in the rail sector. Access to road infrastructure is free of charge for passenger vehicles, fares were recently abolished for many public transport users, and the vignette heavy goods vehicles pay to use the roads is so low as to be effectively symbolic. The negative consequences are substantial. Estonian cars have the highest specific carbon emissions in the European Union and poorest energy efficiency. The introduction of free public transport did nothing to reduce inequalities between Estonians or reduce car dependency and will ultimately lead to lower quality public transport services, further undermining the attractiveness of this mode (see Chapter 2, sections 2.5 Steering User Behaviour and Public Transport Policy, 2.6 Rail Freight and Infrastructure and 2.7 Road Freight Regulation for detailed analysis). Estonia needs to reform taxation and user charging arrangements for both freight and passengers, and also road and rail. The overarching objective should be to achieve stable and efficient levels of infrastructure cost recovery through taxation and user charging. Generally, such user charges should be based on short-run marginal costs, with mark-ups to contribute to fixed costs based on willingness to pay. The taxation and charging system should incorporate incentives to reduce emissions through differentiation of charges in relation to vehicle emissions characteristics. Revenues from fuel excise duty will erode over time, as cars become more fuel-efficient and the share of electric vehicles grows. A vehicle-kilometre charge will be needed to compensate for this loss. In the meantime, fuel excise duty also has an important role in steering choices towards reducing CO21 and other harmful emissions. The large gap between duty on diesel and petrol created by temporary Covid-19 crisis measures needs to be reversed and eliminated. In the case of roads, the objective should also be to achieve funding independence for the prospective road company through the introduction of distance-based user charges. This will also generate an appropriate contribution to costs from users of the network that are registered abroad.  The introduction of car ownership taxes should be considered as an incentive to buy cleaner new and second-hand cars. This would be best achieved through a minimum emissions class limit for the first registration of second-hand car imports, together with a tax on the purchase of new vehicles that is differentiated by emissions class. This combination is preferred to a differentiated annual circulation tax to minimise any regressive impact.  Public transport fares should be re-introduced where they have been abolished. Experience now shows that the introduction of free public transport in Estonia did nothing to increase ridership and made no contribution to reducing traffic on the roads. The modelling results presented below suggest that the re-introduction of user charging would similarly have no negative impact on ridership. Re-introducing fares would improve funding stability for public transport and enable greater investment to improve service quality, which is essential to retaining and increasing ridership. 22 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES  Electronic distance-based charging for passenger cars will eventually be needed. Electronic distance-based charging (hereafter: evkm charging) can offset the erosion of fuel tax revenues as vehicles become more fuel-efficient and electric vehicles replace fossil-fuelled cars. Simulations from other countries show that technological progress could lead to a more than 50% fuel-tax revenue erosion by 2050. In Estonia, negative population growth is likely to drive an even larger relative decline in revenue. This makes the introduction of an evkm charge a necessity. The charge could be increased gradually over time, to enhance its political acceptability, but planning for the evkm charge solution and procurement of the system to operate it should start immediately. The equity concerns of a charging system can be addressed by targeted subsidies and/or cross- subsidisation within the system. An evkm charging system can also be used to manage congestion, should this become a significant issue in the future, by differentiating charges based on location and time of day where needed.  For trucks, evkm charges should be introduced as soon as possible, for several reasons. The price of the current time-based vignette required to use the Estonian network is low and is limited by EU directives. Thus, their contribution to infrastructure cost recovery and scope for use in internalising external costs is minimal. Furthermore, domestic and foreign international hauliers can avoid Estonia’s relatively high rates of fuel excise by purchasing lower-cost fuel in neighbouring countries, thereby avoiding making a fair contribution to the costs they impose on the Estonian road network. Estonia should introduce an evkm charge now, channelling revenues directly to the prospective road company to help ensure its funding independence. If user charges are set at a level to cover half or more of expenditure on the roads, the company would have the freedom to raise its own debt, greatly facilitating the financing of new infrastructure and upgrading of roads. If the political acceptability of such a reform requires offsetting the user charge this could be achieved through partial rebates of fuel excise duty to commercial operators, a system that exists in some other EU member states. If road freight evkm charge revenues that are insufficient to secure funding independence for the road company, an extension of the charge to passenger cars should be accelerated.  Fuel taxes should remove the incentive for the use of diesel fuel. In May 2020, Estonia temporarily cut diesel fuel taxes by 25% for a period of two years as a response to the Covid-19 crisis. This timeframe should be respected and diesel fuel taxes be set at the same level as petrol taxes upon the expiry of this measure. This is essential to remove the fiscal incentive for the use of diesel fuel, which imposes significantly higher costs, via lower taxation levels than those applied to petrol, as has historically been the case.  Access charges for rail infrastructure should be set to preserve rail’s independence from short-term budget risks. Rail infrastructure charges cover around 70% of annual expenditure on the system and until recently freight revenues covered 100% of costs. Parts of the system need electrification but there is generally overcapacity and, to date, no major maintenance or renewal deficit. This independence from exposure to the short-term risks associated with general budget funding and the financial equilibrium should be conserved. Policy towards modal shift for freight from road to rail, and to carry more passenger traffic, might require subsidies to train operators. This is a preferable route to supporting these services than reducing infrastructure charges. Compensating the infrastructure manager for lower charges through annual budget settlements would risk undermining the predictability of funding for infrastructure. At the same time, periodic review of charges is recommended, to ensure that mark-ups correspond with price elasticities, and the terms of conditions for access and ancillary services are non-discriminatory. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 23 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES  Specific urban transport considerations: Estonia should develop a comprehensive and integrated set of policies to change user behaviour if the desire is to increase the use of public and active transport modes. This involves both discouraging choices that are not socially desirable and encouraging other, more desirable choices. Such policies should involve the provision of more and better services and better co-ordination of service offerings to enhance convenience and value and improve the overall customer experience. Key steps are that public transport pricing should be re-introduced and the revenues obtained used to direct more resources toward improving the service quality. An integrated tariff system is needed for public transport by all modes, together with improved co-ordination between territories. Public service obligations (PSO’s) and concession contracts should also include more incentives, such as payments related to service quality. More road space should be devoted to cycling and walking. Lastly, the effectiveness of urban public transport policies will be maximised where they are integrated with land-use planning. This implies that planning rules should favour development in areas that are best served by public transport, that they should reflect an acknowledgement of the accessibility benefits of higher-density cities and that development fees should be used to support transport-related infrastructure improvements. Focus on North-South cross-border co-operation to develop rail freight along this part of the EU corridor Estonian freight railways have historically been heavily oriented towards former Soviet Union markets and for a period operated as a private, profit-making enterprise. This traffic has become volatile and declined. Growth in recent years has come from domestic container traffic from the ports, much on North-South lines. The Rail Baltica project is expected to expand flows along this corridor, with goods to and from Finland playing a major role for its business case. However, much remains to be done for this to happen (see Chapter 2, Section 2.6 Rail Freight and Infrastructure for a detailed analysis). Building the Rail Baltica (RB) line is only the beginning of this initiative and numerous initiatives will be required to exploit its potential. For successful operation, Estonia should strive for the adoption of a joint governance model between the three Baltic States for the management of RB infrastructure. If achieved, centralised traffic management and operations control will facilitate seamless train movement, ease the access and enhance the attractiveness of the line for customers, improve infrastructure maintenance and avoid redundancies. Efforts to build future strategic partnerships should commence immediately in terms of operations. Poland and Finland should be closely involved in RB’s deployment and operations planning. Cross-border co-operation and rail freight traffic connections should be pursued well before RB is finished. Initiatives such as the existing “Amber train” service between Lithuania to Estonia will promote co- operation between infrastructure managers (IMs), operators and other actors, favouring the development of common rules and identifying bottlenecks. The primary role of RB is that of an international connection. RB was designed to avoid population centres and to foster international connectivity. This should remain to be the case. Upgrading the existing network that runs through population centres is a more effective way to improve regional connectivity. The international focus should not be repurposed to service regional demand. The future of freight rail and its contribution to a carbon-neutral economy will be increasingly determined by its ability to adapt and capture part of the container market. Estonia needs to foster intermodal operations and the development of dry ports and intermodal terminals. Modernising existing infrastructure is essential to improvements national and regional connectivity. 24 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES Estonia should not pursue a strategy to become a regional transport hub While Estonia recovers a relatively high share of direct rail infrastructure costs (about 70%) from access charges, there remains a 30% shortfall, and there is no cost recovery for externalities. For road freight, the infrastructure costs are fully recovered, and the incentives to limit CO2 emissions created via fuel taxes are stronger than in most EU countries. However, externalities still matter. Increasing the amount of transit activity in the road freight sector would increase the need for road infrastructure expansion or the introduction of congestion charging, creating a social cost for Estonia. Similarly, if transit traffic increased on the rail network the Estonian taxpayer would effectively be subsidising transit traffic. Rail Baltica is an exception, due to its (expected) 81% co-funding from the European Union. In these circumstances, Estonia should not be pursuing a strategy in which it aims to attract more transit traffic. Social value for money should remain a key consideration, even when cost recovery requirements are relaxed, for example in the interest of contributing to objectives of regional political cohesion. Appraisal of projects, domestic or international in character, should retain this perspective. Port policy should focus on developing maritime business clusters and contracts for ferry services should allow pricing to be used to manage demand Estonian ports perform well but remain underutilised as the result of a sudden drop in Russian transit traffic a decade ago. Rail Baltica, the main initiative to attract additional cargo flows, is still several years from becoming operational. A valuable lesson for making infrastructure investment in the future is that transit flows are volatile and could easily lead to large investments becoming stranded. Estonia has few options to address this problem. While there may be opportunities to pursue value-adding activities in the ports, they are unlikely to yield substantial economic gains (see Chapter 2, Section 2.8 Maritime Policy for a detailed analysis). The current state aid package to attract 200 ships to bear the Estonian flag is likely to be ineffective and should be re-evaluated. A maritime cluster strategy should be developed instead, targeting innovative maritime activities, where Estonia could develop comparative advantages. In passenger transport, ferry tenders should be redesigned to incentivise service quality and efficient use of assets. This involves introducing a dynamic pricing scheme to reduce ferry congestion during peak times and moderate underutilisation during weekdays and the off-season. Incentives in PSO contracts for equipment and asset maintenance should also be investigated. Aviation transport policy should focus on generating more data to support decision-making and efficiency incentives should be introduced at Tallinn airport One of the limitations faced in trying to assess transport policy in the aviation sector and conduct basic quantitative modelling was the lack of relevant data. As a result, it is difficult to assess the impact of important developments, such as Rail Baltica on Tallinn Airport. The new rail connection will improve access to the competing Riga airport. To make informed decisions on aviation policy, the Ministry of Economic Affairs and Communications should conduct periodic air connectivity reviews as an important input to aviation project planning and project selection (see Chapter 2, Section 2.9 Aviation Policy for a detailed analysis). In line with study recommendations regarding institutional reforms, the economic efficiency of Tallinn Airport in delivering air connectivity should be subject to scrutiny from the proposed transport sector regulator. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 25 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES Develop a Transport Technology Roadmap through dialogue with major innovation-focused institutions The proposed Technical Resource Centre should lead a process of developing clear goals and priorities for transport innovation through a Transport Technology Roadmap (TTR). This should involve ongoing structured dialogue with major innovation-focused research bodies as part of a strategy to frequently update the TTR. A dedicated group within the TRC should develop and guide the work being undertaken on the future impact of technology on transport, in turn informing the new National Transport and Mobility Master Plan. Adopt a principles-based approach to regulating new mobility services This will enable consistent and timely responses to new mobility services, helping ensure their potential benefits are realised and costs and negative externalities are minimised. The principles should be based on those previously highlighted by the ITF and OECD and should be linked to a sustainable urban mobility plan. Develop a nationwide climate-resilience analysis for the transport system This will ensure that site and design decisions for major transport assets and maintenance choices for existing assets systematically address climate risks. Estonia should consider relevant EU policies and requirements and draw on the work of international organisations and other countries that have adopted analytical frameworks for this purpose. 1.2. How should reform progress be measured and communicated? An indicator framework is an effective tool to communicate transport policy reform progress to the public. A set of indicators was developed during this project with Estonia and organised in terms of broad transport policy objectives. International practice, the research literature and the current Estonian Transport and Mobility Master Plan, were considered. There is no manual or single identified best practice approach to defining transport policy objectives or measuring progress towards them. However, one of the most common approaches is to identify objectives related to three key dimensions of sustainable development - environmental, social, and economic – and, for each, develop specific indicators or targets (see Chapter 3 for a detailed analysis). The ITF identified over 200 indicators, proposed and currently in use. However, if an important objective of the indicator framework is to communicate transport policy progress to the public, using a large number of indicators would be self-defeating. We, therefore, defined six principles to guide the selection of the most relevant indicators. One of these is that all indicators need to be able to measure a tangible benefit or outcome obtained by users as a direct result of a transport policy. There are two aspects to why this is important. First, all indicators are not equally relevant to all users, which means at least some indicators should be linked to particular user groups. Second, the outcome measured should be as close as feasible to the user’s experience of performance. For example, citing the length of road infrastructure in a particular country does not mean much to a car user. A more relevant outcome is the length of people’s average daily trip (in time and in cost). 26 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES The ITF defined nine user groups, adopting the above principles (private road transport, walking/cycling, public transport, and so on). At least one indicator was selected for the nine user groups of each of the following performance dimensions: accessibility/connectivity, affordability, emissions, and efficiency. Table 1 is an excerpt from the indicator framework that relates to car and taxi users. The progress towards EU-wide transport policy targets as laid out in the EU Transport White Paper (European Commission 2011) can be tracked through improvement in the same Indicator Framework. Table 1. Transport Policy Indicator Framework – an excerpt Transport Indicator Indicator Description policy category objective* a. Road private passenger (car and taxi) Average time to reach the international Accessibility 3 1. Time to border by road market by car (including depart border procedure) 2. Urban accessibility Average travel time per trip Accessibility 2 3. Inter-urban and rural accessibility Average travel time per trip Accessibility 2 4. Fuel efficiency Energy consumption (in kWh per vkm) Efficiency 3 5. CO2 emissions CO2 emissions total and per vkm Emissions 1 6. Average fleet age Average age of registered vehicles Emissions 1 Expenditure on private vehicles, % of Affordability 2 7. Affordability of private vehicles household income for the bottom quartile of the population * 1 = environmental objectives, 2 = social objectives, 3 = economic objectives. 1.3. How ambitious must transport policy reforms be to achieve significant progress? The quantitative component of the policy review undertaken with Estonia modelled three scenarios, comprised of a selection of policy reforms based on the recommendations of the ten policy area reviews. These scenarios do not constitute a comprehensive policy plan, but rather estimate the likely impact of those reforms that could be modelled using the data currently available. They provide a series of “what if” scenarios that shed some light on possible reform paths and their impacts (see Chapter 4 for a detailed analysis). The outcomes of High Ambition (HA) and Low Ambition (LA) reform scenarios for each transport sector were compared with the Business as Usual (BAU) scenario, which assumes no change to current transport policies. The HA scenario was chosen to represent what could be feasible with strong political alignment, sound prioritisation of the transport reform and sustainable growth. The LA scenario represents the likely impact of a reform programme in which some measures are not implemented fully, or have their implementation delayed significantly. The BAU scenario assumes no change in policies and only accounts for population and GDP changes. Introducing and increasing charges for private car users is the most efficient measure to push users to other modes Estonia has potential for a substantial modal shift from car to more sustainable modes of urban travel, i.e. public transport, walking and cycling. If the HA scenario is achieved, the proportion of total trips made by THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 27 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES car could fall from more than half at present to less than a third. These results are largely driven by two user charging measures: a congestion charge for Tallinn and a distance-based toll for all car trips. Coupled with this mode shift away from cars, and optimisation of the car and public transport (PT) fleets, the ambitious scenario suggests CO2 emissions could be nearly 50% lower in the HA scenario than in the BAU scenario, in 2050. While the user charge-driven mode shift is positive in terms of sustainable mode share and CO2 emissions, the incidence of the increased costs should be evaluated to ensure individuals are not unfairly burdened. Reintroducing fares for public transport does not adversely affect patronage or CO2 emissions Reintroducing fares for public transport would provide a revenue stream for public transport authorities to make improvements to services and provide some insulation from the risks of fluctuations in funding allocations from the general budget. The proposed restoration of fares would make a minimal difference to urban mode shares or CO2 emissions in our model. The reintroduction of fares does not need to have adverse impacts on the equity of users and any issues could be addressed through direct income support. Large proportionate increases in rail ridership will make only a small contribution to mitigating CO2 emissions overall given rail’s small initial share of passenger traffic The model incorporates reforms that target user behaviour by improving rail travel, which leads to significant increases in rail travel from the current levels. However, due to the comparatively small share of rail passengers overall, the results are not transformative on a national scale. The optimisation of private car and bus fleets would reduce CO 2 emissions by 27% of road and overall emissions This reform is responsible for the majority of the 30% savings in carbon emissions in the HA compared to the BAU scenario. Optimisation is a combination of shifting to lower-emission vehicles and a cleaner fleet, as well as better utilisation (higher occupancy) of the vehicles in the fleet. Electrification of rail could reduce related CO2 emissions by 48% compared to current freight activity The modelling suggests that electrification of the railways would result in a 48% emissions drop from freight activity if all lines are fully electrified and all traction were electric. This estimate uses the European average for the emissions factor for electric power production. This would produce an annual saving for freight of more than 25 000 tonnes of CO2 considering well-to-wheel2 emissions. If the highest-utilised corridor from Tallinn to Tartu is electrified, this alone leads to a 22% savings in CO2 emissions. It would lead to significant savings to the operators, increasing efficiency, as well. On the passenger side, the reduction of well-to-wheel CO2 emission of rail is rather small in HA because the electrification is compensated by an increase of the rail activity (-2 000 tonnes per year from rail). More substantial benefits come from a modal shift of passenger car to rail, with -2% of overall passenger emission, e.g. about 50 000 tonnes per year in HA. 28 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES Notes 1 CO2 equivalents were not used to accommodate for other types of emissions as well (e.g. NOx, SOx) as it would only contribute to a sense of false precision in this particular case. 1 L of Diesel is 3.07 kg CO2 / litre for CO2 alone, and 3.17 kg CO2 eq, so only 3% more. 2 A well-to-wheel implies the entire (life cycle) environmental impact was considered, from the production of the energy source to the actual emission from the tail pipe. A less comprehensive approach is tank-to-wheel, which considers only direct vehicle emissions. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 29 CHAPTER 1. REPORT OVERVIEW AND MAIN MESSAGES References ITF (2018), Private Investment in Transport Infrastructure: Dealing with Uncertainty in Contracts, International Transport Forum, Paris, https://www.itf-oecd.org/sites/default/files/docs/private- investment-transport-infrastruture.pdf. OECD (2019), OECD Economic Surveys: Estonia 2019, OECD Publishing, Paris, https://doi.org/10.1787/ f221b253-en. MEAC (2013), Transport development, Ministry of Economic Affairs and Communications, Tallinn. European Commission (2011), WHITE PAPER roadmap to a single European transport area towards a competitive and resource efficient transport system, COM (2011), 144. 30 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Chapter 2. Assessment of key transport policy areas This chapter consists of a high-level assessment of ten selected aspects of transport policy. These were codetermined with Estonia. For each aspect, issues were identified and recommendations developed. The findings of this analysis then informed the choice of reforms in the policy scenarios modelled in Chapter 4. 2.1. Institutional structure The International Transport Forum reviewed the current institutional arrangements in Estonia in respect of transport policy, investment, service delivery and regulation. It considered recent institutional reforms, proposals currently under consideration by the Estonian government, and previous recommendations for institutional reform in the sector. This chapter sets out the conclusions of this analysis. It identifies key institutional weaknesses and recommends an integrated set of institutional reforms that would support improved performance in key strategic areas, notably project identification, appraisal and selection; regulation and supervision; and cross-modal and cross-sectoral co-ordination. A key perspective is that of the need to recognise the inter- dependence between processes and institutions and, consequently, to ensure that mutually supportive arrangements are put in place to enable better outcomes. Key issues Sound institutional arrangements are an essential element of a well-functioning policy and regulatory system. Two key areas in which institutional quality is particularly important are:  project identification, appraisal and selection  regulation and supervision. These functions must be undertaken using sound and consistent methodologies if the social returns on investments are to be maximised. A systematic approach is needed to ensure that all relevant investment options are identified at the appropriate time, that decisions reflect deliberate choices, and that those choices are based on estimates of the expected performance of investment options made using appropriate and clearly identified criteria. Sound institutional arrangements are fundamental to ensuring that good processes are consistently followed, that high-level policy goals are achieved and that social benefits are maximised, even when there are competing political imperatives. Developing and implementing an appropriate institutional structure requires significant attention to key governance elements. Of particular importance are clearly allocated roles and responsibilities, adequate and appropriate powers, accountability and transparency, and systematic performance evaluation (OECD 2014). Second, appropriate co-ordination arrangements are needed to ensure that decisions are optimised across modes, providing sound linkages between individual projects and within-mode choices and the broader transport strategy, as well as other relevant policy fields. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 31 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Similarly, a well-functioning regulatory system for infrastructure is essential to supporting growth in a market economy. The World Bank (2015) notes that “Good regulatory practices can determine the prospects for policy success or failure. Studies show strong correlations between regulatory quality and economic growth, better governance quality and higher incomes per capita.” Similarly, the OECD (2014) argues that better governance arrangements for regulators enhance their effectiveness and contribute to the achievement of key policy goals, particularly by building legitimacy, underpinning capacity development and supporting the development of necessary co-operative relationships between stakeholders. Current institutional arrangements contribute to deficiencies in project identification, appraisal and selection While project appraisal practices have improved, and the use of cost-benefit analysis is more widespread, there is currently no generally applicable guidance on project identification, appraisal and selection. Appraisal methods are inconsistent and appraisal is often conducted too late to influence project selection significantly. Deficiencies in the current institutional structure contribute significantly to these shortcomings and must be rectified if the ITF’s proposed reforms to appraisal processes and methods are to be implemented effectively. The International Monetary Fund (IMF) has rated the effectiveness of project selection in Estonia as low. Two of the concerns it identifies are: 1) the lack of a “comprehensive pipeline” from which projects can be selected, based on consistent, published criteria; and 2) the lack of review of nationally funded projects by an independent agency. The IMF rated these as high priority areas for reform, together with the need to adopt a standard appraisal methodology. Moreover, in contrast to European Union-funded projects, appraisals of nationally funded projects are not published (IMF, 2019), impeding scrutiny by stakeholders and thus reducing accountability. The OECD has also raised the issue of inconsistent approaches to project appraisal, noting that cost-benefit analysis had not been systematically applied to the infrastructure projects planned for 2018-20 and that “given the already considerable levels of investment in road and rail transport, it is unlikely that such additional projects will have high positive economic returns” (OECD, 2017: 24). The absence of a “coherent framework” to assess the value for money and socio-economic impacts of investments was identified as a fundamental challenge in identifying the most productive investment projects and it was noted that the National Transport Development Plan 2014-20 did not set priorities among the specific initiatives identified (OECD, 2017).3 The significance of these issues is demonstrated by previous research on the importance of sound public investment management, which concludes that good co-ordination in investment planning and a clear system for project selection can close up to two-thirds of the public expenditure efficiency gap (IMF, 2019: 20). Discussions with Estonian officials indicate that the issue of differing approaches to project appraisal, including inadequate and inconsistent use of cost-benefit analysis (CBA), remains despite a more widespread use of formal project appraisal methodologies in recent years. The results of CBA are not typically used to compare possible projects, within or across modes; still less cross-sectorally. Of particular concern, as noted in Section 2.2 Infrastructure Planning and Project Selection, is that CBA is often undertaken too late in the process to influence project selection. Instead, the results of project appraisals are seen as frequently serving in practice to provide post hoc rationalisation for choices made on other grounds. Estonian officials also identified the division of strategic planning functions between numerous organisations – including municipalities, ministries, the Roads Administration and transport operators –as a contributor to the problem of investments not being compared on a consistent basis, particularly across 32 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS modes. The OECD (2017) has previously recommended that Estonia establish an independent infrastructure advisory body with responsibilities across all infrastructure sectors. This reform would contribute significantly to the adoption of consistent approaches to project appraisal and selection. It would facilitate the development of project appraisal methodologies and process standards that could be endorsed by the government for use across both the transport sectors and in other key infrastructure sectors. Such a body would also have responsibility for conducting broad infrastructure audits and recommending investment priorities, thus facilitating the development of a major project “pipeline”, from which strategic choices could be made. However, officials have indicated that the government has not actively considered this proposed reform to date. Fragmented institutional responsibilities impede co-ordination between project appraisals and strategic policy Estonia has a well-established Transport and Mobility Master Plan, which identifies some individual transport investment projects. However, officials note that there is limited co-ordination between project selection and the high-level objectives and orientations established in the Master Plan. As an example, the Roads Administration faces an increasingly large gap between budget allocations and the list of projects it must complete, with tensions between the need to address maintenance backlogs on existing assets and to meet political commitments to developing new infrastructure. This is consistent with previous OECD findings, which point to a lack of strategic co-ordination as an important factor limiting the effectiveness of transport infrastructure investments in Estonia (OECD, 2017). More broadly, Section 2.2 notes that there is no process for moving between project-based decisions and the development of a larger choice set in the context of budget constraints and the need to use identified criteria to determine priorities. In addition, officials describe a gap between national-level planning and municipal and regional priorities. This second dimension of the strategic co-ordination issue is particularly relevant given the increasing focus in OECD countries on accessibility perspectives in transport planning. Greater priority is being given to the concept of minimum acceptable levels of access to be provided to all members of the population. The recent centralisation of some regional transport functions in the context of the January 2020 abolition of the county level of government (Maavalitsus) may heighten concerns that regional priorities are not well understood and not taken into account by decision-makers. Institutional capacities are limited by issues of scale A key implication of the current mode-specific institutional structure in the transport sector in the context of a small country is that the small scale of some institutions is likely to prevent some institutions from attaining a critical mass. That is, they may be unable to develop and maintain an adequate core of expertise to underpin the development of strategic approaches to their roles, such as the adoption of best practice regulatory policies and practices. For example, the Civil Aviation Authority has a staff of approximately 32 people, and officials indicated that capacity problems within the organisation have been identified in a number of external audits. The small scale of a number of entities also means that scale economies in the provision of support services cannot be achieved, exacerbating resourcing issues. Conversely, officials expressed concerns regarding a perceived imbalance in size and influence in the policy process between the Roads Administration and the bodies exercising equivalent responsibilities in respect of other modes. Such dynamics can undermine the development of balanced strategic plans that incorporate appropriate and integrated transport solutions. The small scale of several institutions in the transport sector also implies that available potential economies of scale are not being exploited. The broader context is one in which the Estonian government has adopted a programme of mergers and consolidation of institutions. For example, it recently created THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 33 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS the Consumer Protection and Technical Regulatory Authority (TTJA) by merging the former Consumer Protection Board and Technical Regulatory Authority. However, there is scope for significant further consolidation. Key institutions exhibit significant governance deficiencies Estonia makes significant use of the “arms-length agency” model in the transport sector, with bodies including the Roads Administration, the TTJA and the Civil Aviation Authority being governed by their own statutes. However, these statutes constitute secondary, rather than primary, legislation and are approved by the Minister, rather than the parliament. The governing legislation requires these statutes to set out the scope and functions of the agency, organisational and management arrangements (including the rights and obligations of directors), the structure of the agency and functions of its constituent units, among other governance matters.4 In practice, however, these statutes contain relatively little detail on these issues and the requirements established have a limited degree of consistency, with the best practice principles for the governance of regulators identified by the OECD (2014). For example, the statute of the Roads Administration states, in relation to the organisation’s strategic role, only that it has the function of “participating in the development of policies, strategies, development plans and legislation relevant to its area of activity and in the preparation and implementation of international projects”.5 This provides little clarity as to the Roads Administration’s specific role or relationship to other bodies in the context of such policies, legislation, etc. The statutes of independent agencies should clearly and explicitly identify and detail their responsibilities in respect of key functions and the processes to be followed in carrying them out. They should provide the agencies with distinct identities and adequate degrees of independence, consistent with the nature of the roles they are required to perform. Good governance arrangements form a fundamental component of a well-functioning institutional structure which, in turn, is essential to ensuring that sound processes are consistently followed and decision-making is robust and resistant to political and/or stakeholder pressure. It is essential that key organisations be able to give frank and independent advice and assessments to support better policy discussion and decision-making. The organisation and funding of road asset management limits financing options and imposes efficiency costs Estonia collects almost twice as much money through fuel taxes as is allocated to the Road Administration through the general budget. Until 2015, the funding of the Road Administration was secured through earmarking a portion of fuel taxes. However, that policy was abandoned in favour of increased fiscal flexibility. So far, this change has not significantly affected the funding stability of the Road Administration, However, a common experience in many countries is that, when the fiscal situation deteriorates during downturns in economic cycles, spending priorities change, and the provision of adequate levels of infrastructure funding through the general budget is likely to be compromised. This has negative impacts on maintenance planning and life-cycle cost optimisation of new investment difficult. Among the consequences are maintenance backlogs and, ultimately, costlier maintenance or a sustained reduction in the quality of the infrastructure. The current funding arrangement and the fact that the Road Administration is organised as a public agency rather than a state-owned company also limit Estonia’s strategic options in infrastructure financing. If a state-owned company were managing road infrastructure and recovered more than 50% of its cost through user charges (alongside other conditions), the company could borrow against its own balance sheet and the debt would not count against Estonia’s public debt limits. 34 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Avenues for institutional reform The above discussion highlights issues in respect of transport planning and delivery in Estonia that have significant institutional elements. The recommendations for reform made in Section 2.2. can also be expected to be more effectively implemented if they are supported by appropriate institutional reform. Institutional reforms should be adopted in respect of agencies with responsibilities for project appraisal, project selection, procurement, operations and maintenance, as well as regulation and supervision. Two key objectives of these reforms should be to:  improve links between the strategic directions of the transport policy and individual project selections  enable and support the change in the status of analysts, as recommended in Section 2.2., and reduce the tendency for decisions to be taken on political, rather than technical, grounds. Figure 1 outlines the proposed structure of the major organisations in the sector, while the subsequent discussion provides more detail on the proposed changes, the rationale for them and the expected benefits. Figure 1. Proposed institutional structure for the Estonian Transport Sector “Lead Committee” Strategic Policy Division Technical Resource Centre • consultation during development Develops guidance, cross- of draft transport masterplans • Within MEAC portfolio, internal consulting role • Dedicated division • Within MEAC, but quasi-independent • Specific, detailed statute addressing • Develops strategic directions the TRC’s role, functions and other key Infrastructure Estonia • Reviews and assesses proposals governance issues. (independent advisory body) • Development of masterplan • Specific, detailed statute Project Procurement • Multi-disciplinary board appraisal (incl. PPP policy) • Infra appraisals & priority lists Telecoms Mobility Agency Energy • Multi-modal, supervisory and service delivery functions Water Infrastructure manager (SOE) Regulatory & supervisory Infrastructure Infrastructure Infrastructure agency Road (Project ID, manager manager manager Independent body constituted by legislation appraisal, delivery, Aviation Ports Rail (Current TTJA roles, plus regulatory maintenance). functions of transport administrations) Consumer Safety Economic protection Note: MEAC = Ministry of Economic Affairs and Communications. Establish a strategic policy division within Ministry of Economic Affairs and Communications, supported by a Technical Resource Centre In line with the Ministry of Economic Affairs and Communications’ (MEAC) lead role in developing the National Transport and Mobility Master Plan, a well-resourced strategic policy division should be established within the Ministry. Its primary responsibilities should be to develop strategic policy directions, ensure cross-modal co-ordination, and establish standardised project identification, appraisal and THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 35 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS selection processes and methodological requirements. The strategic policy division should also be responsible for the development of the high-level transport model, recommended in Section 2.2. The individual infrastructure management bodies should have primary responsibility for initial project identification and assessment, within the parameters set by the strategic policy established by MEAC. However, the strategic policy division of MEAC should be responsible for both quality assurance of the appraisals of individual projects and for advising ministers on project selection, both in the context of the National Transport and Mobility Master Plan and more broadly. Section 2.2 highlights the need to change administrative processes to ensure that project selection becomes a formalised and systemic process, whereby decision-makers choose between lists of options which have been subject to an initial, co-ordinated assessment, rather than making piecemeal decisions. Similarly, Section 2.3 Infrastructure Procurement argues for a systematic and evidence-based approach to infrastructure procurement decisions. The relevant division of MEAC should be responsible for implementing these reforms and should be supported by a dedicated technical resource centre (TRC), located within the division. The TRC should provide high-level technical capabilities in key areas, thus supporting MEAC’s ability to undertake high-quality strategic planning and prepare high-quality procurement strategies. TRC staff should also be out-posted to modal agencies to share their expertise during project identification and initial development. The TRC should be headed by a Chief Transport Economist, as recommended in Section 2.2. A core responsibility of the TRC would be to develop detailed methodological and process requirements for project appraisal and procurement of significant infrastructure assets. In the case of procurement, simplified requirements and guidance materials would also be required at a portfolio level for smaller projects. This role should include developing and disseminating implementation manuals and providing training and technical support to analysts in relevant agencies. A core staff of around 12-15 people should be sufficient to enable the TRC to perform these functions, although the provision of out-posted officers would necessarily require some additional resources. The Minister should endorse the methodological guidelines produced by the TRC and require their use across the transport sector. This could subsequently form the basis for the endorsement by the government of a standardised methodology and processes for use across all areas of public sector infrastructure investment and procurement, thus helping to ensure the consistent adoption of best- practice approaches across all portfolio areas. Should the Estonian government adopt a policy encouraging the use of public-private partnerships (PPPs)6, the procurement guidance should specifically address this topic, providing clear rules for determining the appropriateness of their use in specific contexts, preferably within the context of a robust legal framework that is applied across the public sector. The TRC could also provide an appropriate institutional base for the development of a Nordic-Baltic expert network on transport modelling and appraisal, as recommended in Section 2.2. A key function of the TRC would be to provide technical advice and assistance to the infrastructure management bodies in the areas of project identification and appraisal, as well as procurement. The ability of the TRC to contribute to improved practices and outcomes in these areas would be dependent on its ability to forge close and co-operative links between itself and the infrastructure managers. The development of these links would be promoted by co-locating TRC staff in those organisations on an “internal consultancy” basis. This would enable them to work closely and in a sustained manner with these bodies from the early stages of project development. The need to have one TRC specialist for planning and another for procurement permanently co-located with an infrastructure management body would depend on the scale of its planning and procurement operations. For example, there may be a need for two full- 36 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS time specialists at the road and rail infrastructure managers, whereas support could be organised on a shared basis for aviation and maritime. The TRC would ultimately be required to determine the adequacy of project appraisals and procurement processes, assessing them against the published and government-endorsed methodological and process requirements. A sound project selection process requires a body independent of the project proponent to systematically assess the quality of project appraisals. The Chief Transport Economist could be given this function. Project appraisals could be evaluated according to their compliance with the approved requirements before being considered for approval to ensure the robustness of the process. The Chief Procurement Officer would adopt an analogous process. This key role of the TRC would, therefore, contribute substantially to the effective implementation of the OECD’s previous recommendation that Estonia carry out ex-ante cost-benefit analysis on all major infrastructure projects, based on a uniform methodology. This is a key means of working toward the development of a “coherent framework to assess the value for money and socio-economic impacts of planned investment” that would ensure the most productive infrastructure projects were correctly identified and prioritised. (OECD, 2017) The TRC would also be an appropriate body to undertake the more systematic and consistent programme of ex-post assessment of past investments recommended in Section 2.2. As noted, ex-post assessments provide a key means of improving ex-ante analytical methods. Thus, assigning this function to the TRC, as the body with responsibility for developing detailed project appraisal methods and guidance, would provide an effective feedback mechanism. TRC responsibility for this function would also ensure that it was undertaken independently of the initial project proponents, thus supporting the quality and credibility of the analyses. On the procurement side, an illustration of the role of ex-post analysis is available in ITF’s “Motorway Cost Estimation Review: The Case of Slovakia” (ITF, 2018). The TRC should have a distinct organisational existence. Its independence should be guaranteed through its own separate statute so that it can carry out its technical functions effectively. Consideration could be given to the potential need to at least partially exempt the TRC from civil service standards in relation to salary and conditions to ensure its ability to recruit and retain high-quality technical experts. Corporatise major infrastructure asset management The Mobility Agency Proposal currently being developed by the Estonian government would see the establishment of two institutions with cross-modal responsibilities: a national transport agency, broadly equivalent to the Swedish Trafikverket; and a separate regulatory and supervisory agency (RSA), based on the TTJA. Estonia should indeed establish an RSA for the transport sector, adapting the existing TTJA to such ends, as proposed. Key aspects of the RSA proposal are discussed in further detail below. Estonia should also establish a multimodal Mobility Agency. However, the management of major transport infrastructure assets should be undertaken by separate, corporatised entities, structured as state-owned enterprises, rather than being a function of the Mobility Agency. The corporatisation of asset management will enable significant improvement in the efficiency and effectiveness of infrastructure procurement, maintenance and operational functions. These functions should be undertaken on a corporatised basis, adopting a Regulatory Asset Base (RAB) model. Adopting this approach to major transport investments can ensure that the asset manager has appropriate incentives to ensure the efficient delivery and management of the assets, taking a “whole lifecycle” approach (e.g. by ensuring that maintenance programmes are optimally scheduled and implemented). This model can yield significant efficiency gains if it is supported by an effective regime of incentive regulation (Makovsek and Veryard, 2016; Makovšek, 2019; Alchin, 2019). The achievement of these THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 37 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS potential gains in practice is reliant on the independence of the regulator, provision of clear incentives to infrastructure managers, and clear accountability for performance outcomes. The latter condition is most likely to be achieved if the infrastructure managers are organised on a mode-specific basis, facilitating the assessment of the performance of specific asset types. Some of the elements required for incentive regulation, such as an advanced regulatory accounting system, are probably already in place at the dominant Estonian telecoms operator or in the energy distributions sector, both regulated by an independent agency. This would have been a requirement by the European Union directives in the respective sectors. Other tools, such as performance benchmarking, have yet to be developed (an example is included in Smith et al., 2019). The appropriate accountability and transparency mechanisms for the mode-specific infrastructure management bodies would be most readily achieved by establishing them as state-owned enterprises (SOEs). This ensures that clear financial accounting and reporting requirements exist and that other key governance requirements are met. The SOE model is already in use in the transport sector in Estonia (e.g. Estonian Railways Ltd., Tallinn Airport) and should be extended to other modes. In particular, adopting the SOE model in the road network would ensure a clearer performance management framework for major road assets. The adoption of this approach to infrastructure management implies the adoption of complementary institutional reforms that provide sound strategic direction to the responsible entities, as well as effective regulation and supervision. The institutions involved are addressed further below and each covers all modes. This will help to ensure a more strategic approach to project selection, as well as enhancing regulatory capacities and effectiveness. The following recommendations address the role and status of these institutions. The RAB model can be adopted, and provides similar incentive benefits, even when the functions of the operator or the infrastructure manager need to be subsidised. Here, the key requirement is to ensure that the public service obligations that have partly underpinned the decision to invest in the assets are explicitly identified and their extent quantified. This process of explicit identification provides transparency and accountability benefits in terms of the initial investment choices and enables performance management disciplines to be applied, notwithstanding that the asset investment does not fully respond to commercial logic. Ensure that the state-owned enterprises managing infrastructure assets are user-funded If the companies responsible for infrastructure management can fund their functions through user charges they effectively become independent from the annual budget allocation process. Even when that is not fully possible (because subsidies are necessary), a higher level of independence is still desirable. Particularly in the case of the Road Administration, Estonia should both prepare to transform this entity into a state-owned enterprise and increase its funding independence by introducing distance-based user charges. In the long term, the availability of stable funding will contribute to the efficiency of the maintenance and procurement functions. The new road company would also be able to borrow against its own balance sheet and finance new infrastructure without increasing Estonia’s official public debt, provided sufficient funding independence is achieved. The PPP option, Estonia is currently considering, is a less desirable option, as set out in Section 2.4 Infrastructure Funding and the Role of Private Finance. Estonian officials made it clear that the introduction of tolling in Estonia is not currently considered politically desirable. However, Estonian road users are already paying for road infrastructure through fuel taxes. Measures exist to limit the equity impacts of user pricing, such as cross-subsidisation within the network. Furthermore, the political acceptability of user charging could be improved by partially refunding fuel taxes for commercial traffic in the short to medium term. A longer discussion of these issues and 38 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS options is included in sections 2.7 Road Freight Regulation and 2.5 Steering User Behaviour and Public Transport Policy. Establish a regulatory and supervisory agency with responsibility for all modes The proposals currently under development by MEAC envisage the establishment of an RSA. Officials indicated that the recently established TTJA is expected to form the core of the proposed RSA, and that it would take over the regulatory and supervisory functions currently exercised by the mode-specific transport agencies in addition to its current functions. This reflects the fact the TTJA is a key regulatory institution within Estonia, with responsibilities covering several sectors. Moving these functions to the TTJA should improve regulatory administration and enforcement in several ways. First, the consolidation of transport regulatory responsibilities into a pre-existing multi-sectoral regulatory authority will support the adoption of best practices, favour the development of regulatory expertise and better leverage that expertise by allowing to be more easily deployed across sectors. Second, Estonian officials note that the formation of the TTJA has already led to the achievement of economies of scale and scope. Further consolidation of regulatory activities should lead to additional gains in this area. Third, having a single regulator responsible for numerous sectors favours consistency in regulatory approaches, enhancing regulatory credibility and reducing the risks of economic distortion due to unwarranted differences in regulatory approach between sectors. Multi-sectoral regulators are also generally considered to be more resistant to capture by business or political interests. They are comparatively widely used within Europe, particularly in smaller countries, indicating the importance of scale economies and of the related need to ensure that regulatory agencies have a critical mass and make optimal use of scarce expertise. Research shows a clear trend toward multi-sectoral agencies expanding their regulatory scope over time (Jordana and Levi-Faur, 2010). While the TTJA currently exercises regulatory and supervisory functions in relation to both safety regulation and consumer protection, the scope of the RSA should be expanded to include a third, broad area of regulation: that of economic regulation. It should exercise these functions, in particular, in relation to the mode-specific infrastructure agencies recommended above, which should be established as state- owned enterprises. The benefits of adopting the corporatised asset management model, based on the RAB model, will only be obtained if infrastructure managers are subject to an effective regulatory system that establishes appropriate incentives and disciplines. An additional division of perhaps 20 staff members would be required to enable the development of these functions. The key staff of this Division should be highly trained industrial economists, well versed in the economics of incentive regulation, and headed by a chief economist. The division could develop its role over time and be staffed as required. Ensure agencies have adequate independence from the government The model of the arms-length regulatory agency has become widely used in recent decades, as governments seek to enhance the credibility of regulatory structures and reduce transaction costs by minimising political intervention in day-to-day decision-making. The objective is not to undermine ministers’ power to take decisions but to maintain a stable, consistent economic direction between the junctures at which they take course-altering political decisions. Estonia’s transport sector currently includes a number of agencies which broadly follow this model (e.g. the TTJA and the Roads Administration). However, deficiencies in the statutes establishing these organisations limit their independence in practice and governance arrangements fall short of best practice principles. The proposed RSA would be a larger organisation with a wider mandate than the current TTJA. Careful consideration should be given to the governance arrangements adopted for this body in particular. There should be a presumption in favour of establishing the RSA as a fully independent body with its own primary THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 39 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS legislation. The statute should provide adequate detail in relation to the agency’s specific role, functions, powers, governance arrangements, accountabilities and funding, with these provisions being consistent with relevant best practice principles (OECD, 2014; World Bank, 2019). Care should be taken to avoid creating conflicts between the RSA’s functions. For example, some existing functions of the TTJA related to project implementation would appear to be appropriately reallocated.7 In addition to the functions identified above, the RSA should report on the effectiveness and efficiency of the operations of the infrastructure management agencies. Establish an independent infrastructure advisory body The OECD has previously recommended that Estonia establish an independent infrastructure advisory body (OECD, 2017). The IMF has also identified project selection as a high priority area for reform and, in particular, highlighted the fact that nationally funded projects are not reviewed by a body independent of the proponent ministry before inclusion in the budget (IMF, 2019). The institutional reforms proposed above, together with the process reforms identified in Section 2.2, would significantly improve project identification, appraisal and selection practices. However, there is a clear case for establishing an independent infrastructure advisory body as a complementary measure. The benefits of the independent infrastructure advisory model flow from their cross-sectoral remit and high level of independence from the government. While adopting the reforms recommended above would improve investment allocation within the transport sector, optimising national infrastructure investment also involves determining the required amount of infrastructure investment to be committed over time and allocating it between sectors. Only a multi-sectoral agency can perform this role. There is a clear trend toward establishing such bodies, which are increasingly seen as necessary tools to ensure infrastructure spending is well-directed. Infrastructure’s long life span and high cost mean investment decisions should be based on a comprehensive, long-term vision, independent of short-term political considerations. Robust institutions are fundamental to achieving this. Independent advisory bodies can also improve stakeholder engagement, enhance transparency and provide authoritative advice based on detailed analysis. All of these factors help to reduce the influence of short-term political considerations on infrastructure decision-making. Establishing an independent infrastructure advisory body would also help to address the need, identified in Section 2.2, for Estonia to better analyse the implications of international projects, in which it is only one participant, in the light of national transport priorities and objectives. A recently established body of this type is the United Kingdom’s National Infrastructure Commission (NIC). In contrast to some equivalent bodies, its remit focuses on a small number of key functions: it conducts detailed studies of infrastructure needs and produces a National Infrastructure Assessment once per Parliament, which assesses long-term infrastructure priorities and makes recommendations to government.8 Such a focus on core functions is appropriate to the Estonian context of a small country with limited resources, particularly in the organisation’s establishment phase. The NIC currently carries out its functions with a staff of approximately 40 officials. Given the significantly smaller quantity of infrastructure needs in the Estonian context, an equivalent body could carry out its role with far fewer staff than this. In the medium term, consideration should be given to broadening its role by transferring the Technical Resource Centre to it, from its proposed initial location within the strategic policy division of MEAC. This change would be, in effect, the vehicle for applying the best practice project appraisals processes and methodologies that the ITF recommends the TRC should develop across all major infrastructure sectors. It would also mean that Infrastructure Estonia would take on the function of providing independent quality 40 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS assurance of business cases for large infrastructure projects as is done, for example, by Infrastructure Australia.9 While independent infrastructure advisory bodies commonly develop priority lists of proposed infrastructure projects, these are rarely, if ever, binding on governments. However, they enjoy a high level of credibility if developed via high-quality processes and methods. Independent advisory bodies are not intended to remove decision-making responsibility from politicians; rather, they provide political decision- makers with better information, enabling them to make the right decisions in a timely manner. If the potential benefits of an independent infrastructure advisory body are to be achieved in practice, close attention must be paid to its design. Its remit should cover all major infrastructure sectors, including transport, energy, telecommunications and water. Its organisational status, governance, roles, responsibilities and accountabilities should be designed to ensure its ability to provide high-quality, independent advice that is regarded as credible and authoritative by key stakeholders. Established models, such as those governing the United Kingdom’s National Infrastructure Commission and Infrastructure Australia, provide useful starting points for the development of an appropriate model. The demands of establishing the proposed TRC, including the need to ensure that it is adequately resourced with staff with appropriate technical skills, may suggest the need to take a staged approach to the establishment of an independent infrastructure advisory body. However, the nature of these bodies also tends to increase their ability to attract appropriately qualified people from various sectors outside government. Their independent status can contribute to their attractiveness, as can their ability to recruit staff on market-based remuneration arrangements, rather than being bound by civil service rules. 2.2. Infrastructure planning and project selection This section sets out the conclusions found in a review of the methodologies and processes currently underpinning infrastructure planning, project appraisal and selection in the transport sector in Estonia. It offers recommendations for how to improve transport investment appraisal and selection to the Estonian government. All transport modes were considered. Review of the methodologies and processes focused on how the needs of infrastructure investment in the transport sector are being assessed in Estonia. It asked whether they are derived from strategic priorities and how this is being done. Whether the Estonian assessment of transport needs take into account risk and uncertainty or the interdependencies with other economic sectors. It also reviewed how stakeholder engagement is managed. To develop the recommended avenues for reform, the International Transport Forum (ITF) researched just how developed project appraisal is in Estonia. Core questions to determine this were: is guidance on when to choose between a cost-benefit analysis, wider economic benefit analysis, multi-criteria or another method available to the government? Is ex-post analysis systematically performed, and does it help improve future assessments and decisions? A range of other related subjects touching on the organisation of the planning and appraisal functions was also explored. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 41 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Key Issues Estonia has ambitious goals its economy, society and the environment, to which the transport sector will make a vital contribution. Some of these goals relate to aspirations for the people, others to international commitments, for example on climate change. Constraints posed by individual sector budgets, projects and policies at ground level have the potential to challenge the country’s current ambitious goals. Further analysis is required to demonstrate whether continuing on a business as usual assumption at project level will allow for this. An approach should be developed to better communicate linkages that exist between goals, programmes and projects. Some of the elements of this approach exist already. Development of a simple national transport model using forecasts of population, GDP per capita, car ownership and transport costs to generate aggregate traffic forecasts, fuel consumption, carbon emissions and other impacts would be a useful tool. Much of the methodology will need to be qualitative in nature based on a logic structure linking goals, programmes and expected outcomes. This will be a means by which all parties, political, civil service and agencies can engage and share ownership of policy and programme formulation. Three themes are identified here as a means of unpacking these high-level issues and providing a framework for recommended reform:  The culture of decision-making and development of the process – the analysis should precede not follow a decision but precede and inform it  People and Analytical capability -the status of capable analytical teams should be boosted and further development of this role is needed  Tools of the Trade – a systematic approach to modelling and appraisal methods is needed These are explored, in turn, below. The analysis follows a decision rather than precedes and informs it In Estonia, decisions are often made on political grounds and the analytical work, if carried out, is undertaken for the purpose of supporting that decision rather than as a means of presenting decision- makers with a set of options for consideration within the wider policy framework. The analysis tends to follow the decision rather than to inform it. While such practice is not uncommon elsewhere, it places a great deal of weight on the quality of the initial decision if it is taken without the benefit of a strong analysis to inform the political decision at the point at which it is made. Such a process raises challenges for the status of the analyst. It introduces the risk of the analyst losing their independence and being “captured” by politicians and other supporters of the scheme who seek a favourable verdict from the analysis. It could not be determined whether a systematic process of identifying existing and potential problems on the Estonian transport networks exists. The current absence of information about where and when intervention might be needed means there was no means of moving from high-level objectives to a programme of possible projects for investment and for maintenance, with the aim of establishing priorities within that programme in the context of a budget and other constraints on delivery. The absence of such a process could explain the limited role of appraisal in the current decision-making process. Some of the most demanding problems described during this research related to international projects in which Estonia is just one participant. Linking the expected outcomes of these projects to the objectives and priorities of the Estonian government’s national transport programme does not seem a priority. 42 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The analyst team is capable but it needs its status boosting and role developing Estonia has a relatively good base of human resources in transport planning, modelling and appraisal. Professional resources are limited and should be considered when reviewing the balance of demands on professionals against available supply. The following observations were noted:  There is knowledge of cost-benefit analysis as a methodology and experience in applying it, although usually as a tool to justify a prior decision.  Awareness was amply demonstrated of the gap between high-level policy goals and project appraisal methods and of the possibility that bottom-up decisions at the project level would not meet top-down policy objectives.  There was familiarity with useful tools such as highway development and maintenance (HDM) management system models for road maintenance prioritisation.  There was some familiarity with urban mobility modelling and appraisal of public transport schemes, relevant to decision-making in Tallinn City. This led to the conclusion that there is a strong base on which to build in the transport analysis area, although capacity may be a problem. The main issue identified, is the lack of status and recognition accorded to the analyst team. A significant cause of this is the limited role of analysis and evidence in the decision-making process. A further question is how Estonia should develop its professional capacity in transport analysis. As a small country, the market for such expertise will inevitably be thin. While local private sector transport consultancy firms exist and play a valuable role, working with Tallinn local authority analysts, major cross- boundary projects are dominated by analysts from international companies. A systematic approach to modelling and appraisal methods is needed Some useful modelling and appraisal tools exist and are well used by analysts. However, there is no formal guidance or systematic approach to help decision-makers appreciate problems and priorities. This lack of method is more apparent at the strategic level. At the scheme-based level, methods exist and we gained the view that these methods provided a framework for the development of more comprehensive quantification and valuation methods and for the formalisation and documentation of these methods. Strategic modelling tools: Decision-makers require a more evidence-based method for assessing how the evolution of the transport sector is expected to impact the effectiveness of the policies of other government ministries. Examples of this are transport’s influence on the achievement of carbon targets and its impact on land-use policy. Prioritisation and scheme selection: Officials require a process that will allow them to better identify and shortlist potential interventions that are the best value in terms of delivering the high-level objectives while meeting the budget and other constraints. This is the place where cost-benefit analysis excels; informing decisions about priorities. Appraisal guidance: It is possible that methods and values used in the appraisals carried out for rail, public transport and highway schemes have been developed in a somewhat unsystematic way. For example, while the analysts interviewed were all aware of the use of a wage-related value for travel time savings, no references to documentation of these or other appraisal values were provided. While an informal knowledge sharing system might be adequate for the needs of a small country, the conflicts that emerged THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 43 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS when external consultants are involved in undertaking appraisals of externally-funded projects was evident. A well-documented method and set of values will demonstrate the Estonian government’s commitment to the use of analysis and enable officials to challenge the case they are presented with by external funders. The impression that current appraisal methods may be unsystematic was further supported by the analysts interviewed signalling gaps in their data. These included data and projections for vehicle occupancy rates and journey purpose splits, which are needed to convert values of time savings per person into an average value for each vehicle on the road. The resilience of the transport system to various global risks is an issue being addressed in many countries. Most obviously a rise in sea level, an increased incidence of storms and flooding, and scarcity of key raw materials. There was no suggestion that these issues were being addressed yet within the appraisal process in Estonia. Inter-urban modelling and appraisal: Tools already exist for understanding the performance of the options most commonly considered for reducing travel times and evaluating the risk of accidents for users of the inter-urban road network. The adequacy of these models in their coverage of such features as junctions and their interactions with the urban road network were not investigated. While re-assignment was not a significant response in many cases, travellers between cities in the hinterland did in some cases face a choice of routes. As in many countries, the level of maintenance of roads and in particular of local roads is a problem. Officials lacked a strong case for demonstrating the adverse effects of the current neglect or the benefits of an increased level of spending. Poor quality local roads reinforces a perception of mobility poverty and isolation in outlying rural areas. Urban transport: Tallinn city and its consultants have taken an effective approach in developing a model for urban mobility for planning the tram network. It should be feasible to extend this model to incorporate bus services. It was clear how the model could map potential housing and commercial developments on to the tram network and hence demonstrate the links between the capacity of the tram and future demand. However, the model lacked a full transport/land-use interaction assessment process. Given the pace and scale of development in Tallinn, such a tool could prove invaluable both in decisions about planning consent and possibly in capturing increases in land values as a potential means for funding new lines. The ability to provide the data required for establishing such a model would need to be considered. Ex-post evaluation: It was evident that analysts had monitored the performance of some recent projects. One example of findings is that the rail upgrades had resulted in passenger growth well in excess of expectations. There was, however, no evidence of a systematic process for monitoring and evaluating past investment as a means of auditing performance or learning about the potential for improving analytical methods. Avenues for reform In this section, a series of recommendations for reform are organised under the three headings. These relate to the role analysis can play in contributing to well-judged decisions, the human resources needed to deliver, and the methods to be used. Doing the analysis ahead of the decisions Reform of decision-making requires putting in place changes to the administrative process. Importantly, moving from what would appear to be a piecemeal selection of projects as they come to the attention of 44 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS policy makers to a formalised and systematic process. The objective of this reform would be to present decision-makers with a list of options, a broad indication of the likely performance of each and the budget and other constraints against which a programme can be delivered. Such a reform will help decision- makers to select schemes and draw up a programme which best delivers their strategic objectives. New tools are needed to give decision-makers an overview of the problems and high-level potential options that can be sifted, assessed for further analysis and then carried forward as options to be prioritised in the Estonian transport investment and maintenance programme. Responsibility for delivering the programme would continue to be split between the modal agencies, with a cross-modal programme for Tallinn City. Such analysis should not replace political judgement, since in the public sphere government Ministers must be accountable for decisions. It would, however, be preferable to work towards a process in which evidence and analysis precede and inform decision-making. Greater acceptance of this at political level would be the single most important step on the path to a more mature process. It would also help to avoid a situation in which decisions are taken one by one and questions of prioritisation and making difficult choices over resource allocation are not faced head-on. Projects included in the major scheme programme should go through a number of clearly defined stages with codified analytical requirements at each stage (Figure 2). There should be an option generation point at which each scheme is identified and assessed in outline. Some form of early-stage assessment technique should be used to provide some indication of the scope and content of the programme. Then there should be a stage of option development for each individual scheme where the range of possible options are filtered to the best two or three. There should be a further analysis report at the point where the preferred option is chosen. Finally, there should be a full analysis of the social value for money of the scheme prior to final decision. Figure 2. Major project assessment Option generation Option Preferred option Full assessment •High-level goal development selection •Social value for addressed •Filtering of •Report on money •Project options selection criteira •Relation to key identification and •Specification of and process high-level goals outline assessment best two or three Each stage of this process needs to be informed by the budget and other constraints on delivery of each option and of the programme. The aim is to encourage decision-makers to adopt the discipline of prioritisation and of weighing up the competing claims of the problems and solutions that make up the programme. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 45 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS At the final full assessment stage, it is important that a holistic case is developed which relates back to the high-level goals set for the transport sector. A combination of cost-benefit analysis, quantitative and more qualitative methods are used to build the case. Many European countries follow this four-step approach. Variants are developed according to the focus of national policy. The United Kingdom, for example, has developed a more elaborate five-case model (HM Treasury, 2018) that assesses schemes according to their strategic importance, economic case, financial case, management case, and commercial case. The last two go beyond the process outlined above and consider how the project will be delivered and the potential role of the private sector, for example, involving private finance. The Estonian model will need to account for national policy priorities and for projects funded by the European Union and other external parties; identifying Estonia’s interests and separating these from objectives that have an international focus. A one or two-page assessment summary presenting the results of the analysis should adequately reflect both the economic and broader policy issues at stake to the decision-maker. For this, it is not sufficient to compute a single monetary indicator of net value of the project. The gains, losses and trade-offs entailed need to be highlighted. The process should be designed with proportionality in mind; if it is too heavy or burdensome it will fail. The process of moving from high-level problem identification through to a set of possible solutions and narrowing these down to a set of preferred options, ranked in the context of budget and other constraints on delivery, will only be effective if it is linked to a formal approval framework. At each stage, there should be a gateway at which policy makers and officials reach an agreement about the next stage of the development of the programme. Enhancing the influence of the analyst team Analysts in Estonia have very little exposure to decision-makers. This does not help to promote how well- conducted economic analysis can assist policy making. Closer integration between analysts and the more senior policy officials would be one way of gaining wider acceptance of the role of analysis. Officials should be encouraged to ensure that the role of economic analysis forms part of their discussions with ministers. Enhancing the importance of analysis so it becomes an essential input to decisions has implications for the status and capacity of the economic and modelling analysts within government and its agencies. Without being prescriptive, the questions of who does what and where within the government structure would need to be reviewed internally. In the United Kingdom, the status of analysis changed fundamentally many years ago with the establishment of a senior-level post and the appointment of a Chief Transport Economist in the Transport Ministry with a direct line to Ministers, clear responsibilities and the freedom to build a team. The first essential requirement for the chief transport analyst is to concentrate on developing in-house capability and expertise at government and agency level. The reform of decision-making processes and augmenting the tools used by analysts will require an increase in the resources allocated to modelling and appraisal. This is needed both for policy work done at government level and for acting as an intelligent customer for work undertaken by consultants and other agents in the supply pipeline. Therefore, outsourcing the expertise is not advised. Estonia is a small country and, as in the case of other small countries, faces the challenge of ensuring that its professionals are up to speed and maintain cutting-edge industry knowledge. New Zealand, for example, is a small country that participates as an “honorary state” in training networks at official 46 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS practitioner level in Australia. Knowledge sharing networks for civil engineering exist in the Nordic region and this could be extended to transport modelling and appraisal. The ITF would be well placed to foster the development of such an idea. Consideration could be given to branching out into academic links. This could help to bring the Estonian professional transport community into closer contact with similar problems being confronted elsewhere in Scandinavia and with the methods being used for analysis and policy formulation. One purpose of such a network would be to give Estonian officials access to a pool of experts whose knowledge could complement an in-house team in particular transport fields as and when specialist knowledge and experience is required. The aim should be to provide more continuity of collaboration than would be achieved through one-off consulting projects. It is neither efficient nor credible for all economic analysis and modelling to be done in-house. Consultants with special expertise are required. Another relevant scenario from New Zealand is that they have succeeded in developing and maintaining a number of quite small local consultants with world-class expertise in particular areas. One local consultant interviewed during this research was working on the model for the Tallinn tram extensions. We would definitely want to encourage the creation of a local/regional supply chain. However, for international projects such as Rail Baltica, international consultants are bound to be involved and here the requirement is to develop the evidence base and the in-house analytical capability to a point where Estonia is a fully competent client for the work and is contributing to it in the most integrated way possible. Some of the suggestions in the next section might be helpful in that regard. Developing a systematic approach to modelling and appraisal This section contains suggestions for taking the analytical toolkit forward. These are not in priority order but sequenced from the more strategic to the more tactical. A hierarchy of modelling and appraisal tools is useful; one size does not fit all problems. The process of moving through a series of stages from the assessment of policy options to the design and specification of the preferred option should be defined through the formal decision-making framework proposed above. High-level policy option generation and assessment: The development of a high-level tool that provides national-level transport forecasts that inform the design of policies and demonstrate necessary trade-offs between different projects can close the gap between strategic policy formulation and the project level. This could be a relatively simple elasticity model calibrated on historic evidence and use available exogenous variables such as population, GDP per capita, car ownership, and fuel costs together with best evidence on relevant elasticities. This would need to be populated by agreed assumptions about trends in the exogenous variables with a facility for sensitivity testing. The initial work could be done at the national level or with a simple typology of area types such as city, town, rural. The tool should not be overly sophisticated in computing terms and should be appropriate for use by spreadsheet literate people. It should also be capable of progressive development. The main use initially would be to provide a picture of trends in transport demand and to enable assessment of their consistency with carbon and other targets. A second use would be to provide growth factors for use at the project level. In the absence of local data, values used by analysts in comparable countries should be adopted. A second stage would involve a greater use of geography so as to begin to link congestion and land-use feedbacks into the model. This would require a zoning system and a skeletal network with representation of capacity and speed/flow relationships. The two stages together would resemble a national model. A more fully developed project cycle - project option generation: A second recommendation is for the development of a more formalised project cycle, with analysis embedded at key stages. This is to ensure THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 47 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS that analysis and evidence gathering precedes and provides an input to political commitment. For capital schemes, the development of an early-stage screening and sifting tool using available indicators such as volume to capacity ratios, evidence on speeds, accident history and so on to create a set of criteria for entry into a pool of projects which merit more detailed assessment. A well-designed tool will encourage discussion between officials and decision-makers about priorities, likely outcomes, interdependencies and constraints. This tool would contribute to changing the role of analysis from justifying a decision already made to informing decision-makers about the choices of schemes within a programme. Such a tool is likely to be more effective if the information it generates is well presented. Policy makers need to be able to see why it helps them to make decisions. A formal requirement to adopt such a process and to specify the gateways at which decisions are made in the formulation of projects, in the narrowing down of the options, in the allocation of indicative funding and in the more detailed economic case is called for. Informing the choices that decision-makers face: An output of the economic appraisal is the ratio of benefits to costs. While this ratio should be a leading indicator for decision-makers, it is not in itself a decision. It should not be taken to imply that all projects with benefits in excess of their costs should be approved. It is likely that there will be more projects with benefits equal to or in excess of their costs that can be afforded from the budget or can be procured within the planning timeframe. In such cases, some indicative minimum cut-off ratio might need to be set, in order to eliminate the lower value proposals. Secondly, the schemes in the list of viable options will not all be strictly comparable. For example, a cost- benefit analysis of a rail scheme might omit certain benefits such as those of improved passenger comfort delivered by new trains if evidence on passengers’ willingness to pay for those quality improvements is unavailable. Not all environmental impacts will be capable of valuation in financial terms. Considerations of social and spatial equity might also be relevant to achieving policy objectives. For example, for reasons of regional regeneration decision-makers may wish to consider prioritising a highway scheme serving a deprived part of the country even if the appraisal shows that greater benefits could be achieved for road users by investing in a more prosperous region. Cost-benefit analysis can inform decision-making and demonstrate the value of the unmeasured benefits that a decision-maker’s willingness to consider a scheme with a lower benefit to cost ratio implies. For example, imagine a minister was considering approving a highway scheme in a deprived part of the country where benefits were only 20% higher than the scheme costs (a benefit/cost ratio of 1.20:1) over a scheme in a more prosperous region with comparable costs and benefits 50% higher (a benefit-cost ratio of 1.50:1). The decision to do so would imply that decision-makers are willing to spend 25% more (1.5/1.2) to buy road user benefits in a deprived part of the country than they would spend elsewhere. In such a situation, analysts might provide further guidance for decision-makers by referring to evidence on alternative and perhaps more effective ways of meeting the objectives, such as reducing regional inequality by other means. Similar techniques apply to deriving implicit values for benefits, such as rail passenger comfort, which might not form part of the quantified economic appraisal. The assessment summary referred to above will be a key source of the information that decision-makers will need to consider. It is recommended that the Chief Transport Economist in the Transport Ministry is responsible for ensuring that decision-makers are made aware of the trade-offs they are making when considering which schemes they should approve. In addition, the Chief Transport Economist should build up a record of decisions and rationale so that, over time, greater consistency between decisions might be achieved. Ministers and their officials should decide whether the analytical case in support of each of these decisions is made public. There are certain sensitivities in the publication of each individual business case before the 48 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS process has, after a number of years, become a well-established method. However, the government should annually publish an indicator of the value for money of the projects they have approved in terms of the benefit/cost ratio of that year’s programme of projects, aggregating the results of the individual projects. Such an indicator should be accompanied by a short note explaining the process through which the choices have been made by decision-makers (as outlined in Doing the analysis ahead of the decisions above). This will help build the credibility of government decision-making. Final approval stage — modelling: On the main inter-urban highway network, there is not a great detail of route choice. If that is correct, the principal problem is representation and modelling of scheme alternatives including their junctions. Possibly the skeletal network described above might be developed to a level at which alternative capacities and layouts could be represented within that model. Or alternatively, local models might be required. In either case, basic data quality would be crucial for robust analysis. A common experience is that the best tools for modelling analysis, such as aggregate assignment models, are not always the best for communication and presentation to stakeholders and decision-makers. For choices such as 2 by 2 on sections of the main network versus single carriageway or 2 plus 1, microsimulation models can be a very useful way of illustrating the difference in the performance of alternative network specifications. Tools and methods should be adopted which help decision-makers to understand what an option might deliver and facilitate the conversation about priorities and value for money within a programme. Road maintenance: Consistent use of modelling tools such as highway development and maintenance models (HDM) can inform decisions about road maintenance. This would ensure that decision-makers are informed about the outcomes of decisions on the allocation of funding between the capital and maintenance budgets. The use of such tools should form part of the systematic approach the ITF recommends. Ex-post evaluation: The evaluation of project delivery and its performance after opening should be carried out frequently. Following on from the staged process of modelling, appraisal and decision-making set out above, the authority responsible for the scheme is required to undertake some minimum level of data collection after completion and within a few years of opening. The requirements should include data on capital costs and completion dates to inform future decisions about delivery risks. In addition, the authority should be responsible for collecting data on the key outputs from the appraisal, such as traffic flows, accident rates and service levels. Comparisons of actual and forecast performance should be used to help to improve modelling and appraisal methods. Examples of relevant reference points through the project’s lifetime, relevant for ex-post analysis can also be found in past ITF work (ITF, 2017; ITF, 2018). Auditing analysis: In several countries, the independence of the analysis is strengthened by an audit of the methods, assumptions and results of the cost-benefit appraisal for either all schemes above a certain cost threshold or of a sample of them. In the United Kingdom, the audit is carried out within the transport department, but by a team whose role it is to provide an internal challenge prior to seeking HM Treasury’s approval for funding. In Norway, the Institute of Transport Economics at the University of Oslo fulfils this role. In some other countries, the Ministry of Finance is responsible for the review process, which requires an independent audit of all major schemes above a certain threshold. Slovakia is one such example. We did not reach a view about how the function of internal audit prior to approval of the scheme might best be undertaken in a small country. An option for Estonia would be for the audit to be budgeted as part of the project but for it to be procured and administrated by the Ministry of Finance so as to ensure appropriate independence. Another option is to give that role to Infrastructure Estonia, a new cross- sectoral body, proposed in our review of the Institution Structure of the transport sector. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 49 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Consistent appraisal framework, methods and values: It is recommended that Estonia establishes a common framework of appraisal at project level, initially covering economic, environmental and financial considerations. This framework should be comprised of elements that can be valued in financial terms, quantified in physical terms, and that are qualitative in nature, such as impacts on biodiversity or on national heritage. The framework should be flexible and used proportionately and consistently across all cases of investment appraisal. A workbook should be developed which codifies the framework approach itself and the treatment of the usual issues within such a framework. These range from national issues such as the appraisal period and discount rate, treatment of uncertainty, unit of account across to sector-specific problems such as the treatment of induced traffic, and indirect taxation on fuel etc. The Estonian government should consider inviting an external independent review of this workbook to ensure that it represents current best practice. For the foreseeable future, it will be sufficient to rely on the benefit transfer method so as to take advantage of research work elsewhere to import values adjusted for the income levels of Estonia. This will require assumptions about key variables, for example, about the time series income elasticity of the values of travel time savings. However, for a country of this size, the priority is first to develop a set of credible values from elsewhere. These can be refined later with local studies if they are highly controversial or policy sensitive. A prime source in this area is the HEATCO study (IER Stuttgart, 2005) and the associated article by Shires and de Jong (2006). Urban transport assessment: Schemes in and around Tallinn City require a different approach to assessments where it is reasonable to take a uni-modal approach and to use what is essentially a fixed demand with exogenous growth approach because:  walking, cycling, tram, bus and possibly rail commuting still need to be modelled  policies like parking need to be represented  induced traffic from both wide-area reassignment and from trip redistribution are likely to be relevant  land-use change, and its two-way relationship with transport change, is important. Investigation showed that there are some strong drivers of dispersion of both residence and employment location in the city region with implications for city planning as a whole. It is unlikely that a national model of the form recommended above (Developing a systematic approach to modelling and appraisal subsection) could include these features. A model of the city region is required. An impressive presentation was received on the modelling work relating to tram extensions in Tallinn is an example where development of the existing model with better representation of linkages between transport and land use is worth exploring as a way forward. Large externally driven projects – international, private sector: Project examples of this category include the Rail Baltica and the mooted Helsinki—Tallinn tunnel. Whether the requirement is for planning consent or for public funding, the Estonian government should act on behalf of the people to assess what is in the national interest. This goes beyond issues of cost-benefit appraisal to much broader issues relating to regional politics and the planning system. From an appraisal perspective, however, such projects should be considered on the same basis as a domestic transport project, i.e. in terms of their social value for money to Estonia. 50 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS 2.3. Infrastructure procurement Every year, Estonia’s Road Administration and other transport infrastructure managers procure hundreds of millions of euros in infrastructure and related services from the private sector. In 2019, this amounted to around EUR 300 million, disregarding co-funding from the European Union10 (MEAC, 2020). The effectiveness of the procurement process importantly determines, whether best value for money can be secured. The International Transport Forum’s (ITF) task was to investigate 1) how the infrastructure procurement function in Estonia is organised, 2) how the Estonian infrastructure managers in the transport sector approach key procurement choices in delivering projects, and 3) how Estonia approaches the development of in-house procurement capacity and competences. This section is to be considered in conjunction with sections 2.1 Institutional Structure and 2.4 Infrastructure Funding and the Role of Private Finance. The recent International Monetary Funds’s (IMF) Public Investment Management Assessment (PIMA) review could be seen as a high-level companion on issues with regard to procurement. Private investment in infrastructure is addressed in Section 2.4 Infrastructure Funding and the Role of Private Finance. This section looks at what other bodies or roles support the execution of the procurement function in an infrastructure manager. It investigates how Estonian infrastructure managers approach key decisions in the procurement of projects, such as bidder selection process, contract scoping and delivery models, and payment mechanism choice. This also includes how the procuring entity engages the market to inform or be informed. Finally, the effective execution of the procurement function requires competent staff. Hence, this section also investigates Estonia’s progress towards the professionalisation of the procurement function. Key issues Estonia has established solid foundations for procuring transport infrastructure and related services. The EU directives have been fully adopted: an e-procurement system was set up; an appeals body was established to handle bidders’ complaints and; a procurement department hosted by the Ministry of Finance acts as a technical resource centre to advise the public sector on how to procure. The IMF’s PIMA gave Estonia a relatively good mark on project delivery. The same is true for the European Commission’s performance indicators, though these are less useful for this analysis, as they treat public procurement as a whole and do not offer a breakdown for infrastructure and transport. A more detailed review of how public clients in Estonia inform their procurement decisions nevertheless revealed a number of areas for substantial improvement. An infrastructure unit price database is missing Cost estimates play an important role throughout the development of a project – from inception to delivery. In the early phases, a cost estimate based on the outline design becomes an input in the cost- benefit analysis (CBA). Later, cost estimates based on the more mature project design inform the reserve price (the internal budget cap) and the tender estimate, which can be revealed to the bidders. A unit price database collects information (the price of a m3 of concrete, steel, etc.) from bids submitted in tenders. It has a variety of uses at different project stages. It directly informs cost estimates when the design is mature enough to allow an estimation of quantities.11 At present, Estonian infrastructure managers (the Road Administration, the Estonian Railways, etc.) rely on ad-hoc information and partial databases that the project designers themselves have at their disposal. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 51 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The absence of a unit price database can make the initial cost estimates less reliable, the CBA outcomes will be biased, as will the reserve price and the tender estimate. These biases can influence not only the CBA but also procurement outcomes. Kennedy et al. (2018), for example, show that the tender estimate can be an important pricing signal to the market, leading to bids that are up to 10% lower. Without a unit price database, procuring entities also face a serious challenge in trying to determine whether infrastructure prices are elevated and effective competition could be challenged, or when a bid is abnormally low. Estonia has negative cost overruns in infrastructure procurement - this is not a sign of efficiency The ITF’s snapshot analysis of the contract cost performance in the road sector finds Estonia to be an outlier compared to international empirical evidence. The analysis considered only completed projects, no framework contracts, and assumed the data was accurately entered in the procurement register. It is important to note that some vital pieces of information were, in large part, missing; for example, the estimated tender value. Two results of this analysis raise concern. First, for projects above EUR 1 million where the estimated tender value12 was available, in 13 out of 25 projects the contract award value was the same as the estimated tender value, even though only four of those cases had a single bidder. This is a warning flag for anti-competitive behaviour. Had there been any competition, the price would have been anything but exactly the same. Second, in terms of cost performance after the contracts were signed, the entire contract portfolio exhibits a systematic cost underrun. On average, the final contract cost for projects valued above EUR 1 million is 13% lower than the contract award value. Figure 3 shows the contract cost performance, clearly showing that cost overruns are very limited or “cut off”) Figure 3. Final value versus contract award price for road contracts for the period 2007-17 70 60 50 Frequency 40 30 20 10 0 50% 60% 70% 80% 90% 95% 100% 105% 110% 115% 120% Final cost as a percentage of the winning bid (100%=On Budget) Note: Only contracts larger than EUR 1 million are included. Source: Raw data was derived from the Estonian public procurement register.13 ITF, 2018a found that roads experience a systematic cost overrun of up to 9%. The majority of contracts behind this performance are procured based on the lowest price competition, use a design-bid-build method and are priced via a bill of quantities. The bill of quantities is an estimate, so, naturally, the quantities related to the execution of projects cannot be accurate. On an individual project basis, sometimes these will be overestimated and in other cases underestimated. Globally, however, the 52 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS quantities are systematically underestimated, due to the inability of the public clients and designers to fully foresee all the tasks necessary or identify the needs of the public client. The root causes are still a subject of discussion among researchers (Flyvbjerg et al., 2019). What is evident in the Estonian case, though, is that an enormous share of contracts is delivered exactly on the budget or are substantially below it. The primary reason for this seems to be the Estonian approach to contracting. The contracts are design-bid-build contracts based on the bill of quantities, however, a 5% contingency has been put in place for unforeseen works, with conditions for its use defined in the contract. Its purpose seems to have been to limit cost escalation and annexes to the works contract. This cap gives the contractors some room for risk-sharing. However, it essentially moves the contract closer to the lump-sum contract format. Unless the works in question are extremely simple and there is little question about the actual quantities or scope that needs to be delivered, lump-sum contracts are excessively expensive (e.g. Bolotnyy and Vasserman, 2019). A potential concern is also a substantial share of overestimated contracts, which is at least partly explained by the fact that the contract award value in the procurement register includes the 5% contingency. The precise reasons driving these results require an in-depth analysis. Nevertheless, in conjunction with the extremely low level of contested tenders and practically non-existent appeals, the above results suggest an inefficiency of competitive tendering in Estonia and, with that, deficient value for money of public spending. Ex-post analysis and the procurement register are valuable but underutilised tools The PIMA reports that ex-post reviews are done for European Union-funded projects and some major nationally funded projects. ITF’s discussions with the Estonian entities procuring transport infrastructure revealed that ex-post analysis is rarely done on the procurement outcomes. The procurement register includes a range of information on individual tenders but omits essential data points that would allow for a more effective analysis of tender or contract performance. The focus is entirely on the bidder selection procedure and provides no information with regard to other aspects of the contracts. For example, there is no information on the delivery model the project is using or the payment mechanism. Granted, most projects in Estonia rely on a single format (design-bid-build, with a bill of quantities payment mechanism), but this should change over time, following the trends in more advanced countries. Although an ad-hoc description of the contract is available in the database, this does not allow straightforward pooling of different types of works, which have different risk profiles. A current maintenance contract is not the same as rehabilitation and a brownfield construction project is not comparable to a greenfield project. There is no real co-ordination of procurement pipelines across modes Government procurement can be an important driver of demand on the market. If the suppliers cannot effectively plan their capacity or are subject to demand shocks induced by exogenous factors, the state or both, the prices will go up. Estonian entities procuring transport infrastructure maintain a forward-looking plan of procurement, which is said to be reasonably accurate up to one year in advance. There is no structured process or platform over which the authorities co-ordinate their procurement plans. The upcoming procurement cycle of Rail Baltica may substantially affect the Estonian market situation. Although Rail Baltica contracts are expected to be bigger than infrastructure contract sizes procured in Estonia so far, Estonian companies may be involved as subcontractors and the supply of relevant materials may be local as well. There was no evidence of procurement co-ordination between transport and other infrastructure sectors. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 53 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS There is no procurement guidance beyond the issues of bidder selection EU directives focus primarily on the bidder selection process. They offer no guidance on other important dimensions of a procurement strategy, including a make-or-buy decision, a contract scoping14 and delivery model15 decision for larger projects, and the choice of the payment mechanism and other incentives in the contract. Most EU countries do not yet have guidance that concerns procurement strategy decisions beyond those stipulated in the EU directives. However, Estonia need not wait. The absence of such guidance leaves all other elements of a procurement strategy to expert judgement, which cannot be a good basis for systematically maximising value for money, especially if more advanced tools or insights are available. Current Estonian infrastructure procurement practice rarely ventures outside the traditional low bid, design-bid-build contract procured through a bill of quantities. That said, about 46% of contracts procured by the Road Administration are larger than EUR 5 million and a few larger than EUR 20 million. Such contracts might already qualify for a more detailed analysis to devise a comprehensive procurement strategy to maximise value for money. For projects like Rail Baltica, the use of such methods is critical. Consequently, the current in-house technical support - the procurement department hosted by the Ministry of Finance – does not offer holistic support on procurement-related questions, but focuses on compliance with legislation only. The professionalisation of the procurement function in Estonia has yet to materialise Estonia has not yet developed a matrix of procurement specialist roles or their required competences. Many within the government are aware of this issue but no operational measures have been introduced. The literature (e.g. DeCarolis et al., 2018; Saussier and Tirole, 2015) acknowledges the importance of the roles, capabilities and appropriate staff capacity to execute infrastructure procurement efficiently. A lack of capabilities and capacity in the procurement function contributes to inferior procurement outcomes, with significant impact on public budgets. The mitigation measures from Rail Baltica’s risk assessment are not yet fully implemented A risk assessment of the Estonian part of the Rail Baltica project (EY, 2017), undertaken when the project was at the outline design stage, identified multiple risks. These were all of part of or related to procurement: project management, budget/cost estimates and procurement strategy. The two highest ranked risks in the EY analysis (ranked average impact and high probability) and still relevant today implied a potential cost overrun of up to 20% (EUR 260 million) and a delay of up to three years. The Estonian Court of Audit report noted that the risk management system has been set up in the Estonian implementing body Rail Baltic Estonia (NAO, 2019b; Annex D). The mitigating measures for high-level risks that were recommended in the EY (2017) report are not yet fully deployed, with work still underway. With regard to project management, compliance with international best practice and a single project management organisation were recommended. It also stated the importance of a full procurement strategy, among other things. These issues have not yet been fully addressed, though progress is underway. Crucially, the Estonian Court of Audit report (NAO, 2019a and 2019b) recently stated that a “higher-cost” scenario for the project is missing, due to a lack of political will. The Ministry of Finance elaborated that the current Estonian budget could absorb up to a 19% increase of the Estonian contribution, which is about EUR 60 million or 4% of the 2017 project cost estimate for the Estonian section. Though the 2017 risk assessment never produced a risk-adjusted estimate, the top two risks identified by EY alone suggest a much higher budget contingency would be prudent. Greater than 40% cost overruns over initial outline 54 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS design estimates have been identified as typical for projects of this type and scale (Flyvbjerg, Skamris Holm and Buhl, 2002). As noted above, progress in the implementation of mitigation measures has been underway in Rail Baltica and, with the development of the detailed design, the risk of cost overruns will be smaller. That said, projects do face cost overruns even after the detailed design has been developed. For the moment, though, the Estonian budget has no satisfactory contingency plan for significant cost overruns. Such contingency plans should extend beyond a budget plan period; the Estonian budget strategy covers four-year periods, but the Rail Baltica project will last longer. Avenues for reform The above revealed a broad spectrum of issues that range from personnel capabilities and organisation to culture and methods. A comprehensive set of reforms is proposed below to improve procurement outcomes. Create a database for transport infrastructure unit prices There are different ways to arrive at a cost estimate for an infrastructure project, depending on the accuracy desired. A common approach used by many large infrastructure projects is to source unit price information from bids and process it in a database. There is no systematic overview of which authorities maintain such a database, but it is commonly operated by road administrations or companies and other sectors (e.g. US road agencies, Highways England, DARS in Slovenia, NDS in Slovakia, etc.). Ideally, a unit price database is maintained for all public works, going well beyond transport infrastructure, as is the case in Belgium.16 The unit prices in the infrastructure sub-segment can differ considerably from the price developments in the residential construction sector, hence the use of commercial software products from the private sector using unvetted data is inadequate. The ITF’s (2018a) Motorway Cost Review of Slovakia provides other examples of the role of cost estimation. Introduce systematic ex-post analysis of infrastructure projects with additional data points captured in the procurement register Ex-post analysis should be strengthened and become systematic in the procurement process. Ideally, all projects over a certain, rather significant, threshold should be subject to ex-post analysis.17 The procurement ex-post performance should be addressed in the same report as the cost-benefit ex-post analysis. There could be random procurement performance tests and an analysis of the causes of particular problems that may have arisen for smaller projects. To assist the procurement aspect, the procurement register should record several additional data points on project characteristics and procurement outcomes. ITF (2018) recommends that cost estimates be recorded at several critical points through the project’s development. At a minimum, a classification of contracts should be developed in the register itself to separate broad types of works (maintenance, renewal, brownfield/greenfield construction). A qualification of terrain difficulty and complexity of works should be established and recorded18 as well. Further expansion would depend on the Estonian ambition to pursue benchmarking of cost per physical unit of infrastructure, which is highly desirable, but which very few countries have pursued to date (e.g. in the United Kingdom and Australia). Ultimately, though, the benchmarking data would be extremely valuable for the economic and incentive regulation function of the economic regulator for the infrastructure asset managers as envisaged in Section 2.1 Institutional Structure. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 55 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The role of the procurement register must be respected by its users if any of these upgrades are to make sense. The Estonian authorities must ensure that the entry of data into the register is mandatory, with real consequences for lack of compliance. In the current register, missing data is abundant: the estimated values for most tenders were missing in most cases. Analyse the construction market and co-ordinate the infrastructure procurement pipelines across the transport sector and beyond Currently, the Estonian public clients – which are procuring infrastructure, construction or related services – plan pipelines to allow their dedicated market segment – the suppliers – to plan ahead and adjust capacity as necessary. There is no cross-sector co-ordination. This approach assumes that each public client is served by a market segment of the construction market that is completely separate from the rest and a demand increase in one sector will have no spillover effects on the others. This assumption is unrealistic. Many construction firms try to diversify to other sectors so not to depend on a single source of revenue. In addition, they depend on a single pool of construction workers and engineers. A mega project such as Rail Baltica would also affect the supply of construction materials. The Risk Analysis of the Rail Baltica project (EY, 2017) itself identifies, for example, a significant risk for the project due to input price hikes. The average demand for sand and gravel due to the project’s construction is to double on average between 2020 and 2025. Obviously, this will affect not only Rail Baltica, but all other infrastructure construction in the same time span. A construction market analysis should be performed, identifying how public sector demand impacts the Estonian construction sector and its segments. Entities, whose demand affects the same segments within and beyond the transport sector should co-ordinate their spending to avoid demand-driven price hikes. For major projects like Rail Baltica, or considerable initiatives in other sectors, the analysis should capture to what extent the Estonian companies, their construction material suppliers and their workforce will be affected. Multiple scenarios of the involvement of Estonian firms and impacts on other local markets (worker supply, construction materials) should be investigated. Pursue an in-depth analysis into the causes of the contract performance in Estonian transport infrastructure procurement The ITF’s high-level analysis of infrastructure procurement outcomes in Estonia showed a substantial presence of projects where the tender estimate was the same as the contract award value. Furthermore, it discovered a substantial systematic cost underrun of over 10% on ten years of road procurement data. One explanation for this is that the contract award value recorded in the procurement register included a 5% contingency, which should not be the case. That said, the snapshot review was performed on road procurements, as this sector is usually the most developed around the world in terms of procurement practices. This suggests the likely existence of systemic failings in one or more aspects of the procurement process. Given the importance of this issue – which necessarily significantly reduces the effectiveness of Estonia’s infrastructure expenditure – the Ministry of Finance should commission an in-depth analysis of the infrastructure procurement process. This review should assess process quality; contract structures; content, management and works supervision; and anything else deemed important. Further, to ensure the credibility of the review and its conclusions, the government should seek the services of expert auditors (with legal and civil engineering expertise) in the international market. Professionalise the infrastructure procurement role Estonia is aware of this challenge, but significant operational measures have yet to follow. The European Union has recently put forward recommendations on the professionalisation of the procurement function (EU, 2017). The United Kingdom and other countries developed standards on the 56 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS roles and competences of people involved in procurement, project management and related functions. An example is the Project Delivery Capability Framework for Project Delivery Professionals in Government by IPA (2018b). Infrastructure procurement guidance should go beyond the issues of bidder selection Beyond the requirements set forth by the EU directives, Estonian decision-makers in procurement currently do not consider other important procurement dimensions or base their choices on expert judgement. The make-or-buy decision reflects a long-term strategy of the state in terms of where it strikes the balance between in-house capabilities. For example, activities which are consistently needed but for which no real competition has formed in the market need to be insourced. As an extreme example, the Tallinn City Authorities recently entered a third consecutive seven-year contract with a private company who handles the cities’ infrastructure design and procurement. This is a core function and should be insourced. The contract scoping and delivery model selection concern the questions: Should the project be broken down into several contracts? If so, what should the nature of these contracts be? Should they remain competition-based or should they involve approaches that rely more on negotiations and collaboration? The latter may better handle uncertainty due to the project’s complexity or give greater scope for innovation, but can lead to higher cost if applied on inadequate projects or parts of them. The payment mechanism and other incentive power elements determine the contractor’s motivation to deliver on time and on budget. As already noted, lump-sum contracts or requesting on-time/on-budget delivery should be used sparingly, as any uncertainty at the time the contract needs to be priced will lead to excessive contingencies on average and in some cases contractor failure (referred to as the “winner’s curse”). Either contracts need to involve extremely simple works (e.g. moving grass) or a particular project’s on-time and on-budget delivery is of such extreme importance that the public client is willing to pay an exorbitant premium for such a result. Preparing and introducing a new procurement strategy to Estonia is a comprehensive project. It requires progressive stages and should be subject to an official strategy adopted by the government (similar to the DfT’s Infrastructure Efficiency Strategy initiative19). A first stage in that strategy could be the establishment of a sector-wide unit price database. In the second stage, Estonia could pursue the adoption of recently developed tools to support make-or-buy, contract scoping and delivery model decisions. A pilot tool has been in the testing phase in Australia for several years already (ITF, 2018b). Recent ITF work on major projects also complements the Australian tool (Kennedy et al., 2018). The third phase would be the introduction of project management standards. The United Kingdom appears to be a leader in this area, having just released a new set of project delivery standards (IPA, 2018b). A fourth stage would be an investigation of the preconditions that would be necessary for the introduction of new contracting and delivery models in Estonia (e.g. early contractor involvement, alliancing, etc.). And lastly, a fifth stage would be the pursuit of the procurement function job professionalisation. An in-house procurement consultancy should advise on all aspects of a full procurement strategy Section 2.1 Institutional Structure proposes the establishment of a technical resource centre within the Ministry of Economy and Communications. Procurement of infrastructure can have sector- or mode- specific aspects and it is important that the experts are close to “where the action is”. For this reason, the technical resource centre’s staff should be co-located with agencies with procurement responsibilities, THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 57 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS and only as necessary. This implies at least one procurement expert from the technical resource centre would be located in each agency where there is a continuous need to provide procurement advice or guidance (e.g. the Road Administration or the future road corporation, as laid out in Section 2.1 Institutional Structure). When not providing on-going advice, these experts should research current procurement developments and help to devise procurement-related guidance, i.e. support the other main functions of the technical resource centre. As noted in Section 2.1 Institutional Structure, guidance on investment appraisal and procurement produced by different sectors going beyond transport should be aligned throughout Infrastructure Estonia, the body proposed in the same section. What role, if any, should the existing procurement department at the Ministry of Finance play? This will need to be determined by the Estonian authorities. Currently, the department checks for compliance with European Union directives. Give greater priority to implementation of the risk mitigation measures identified in Rail Baltica’s risk assessment and adopt the most likely cost estimate of the project in decision- making The EY (2017) risk analysis included multiple critical points that should be addressed before the project procurement begins. The elaboration of a procurement strategy is currently underway. Among other things, an analysis into the unit cost this project might yield is a critical element that will support procurement and related processes, such as ensuring that an adequate budget is available. Furthermore, it is essential that Estonia start operating with the most likely cost estimate. Arriving at a risk-adjusted cost estimate involves taking the base estimate produced by the engineers (derived from the design) and adding a mark-up derived from a Monte Carlo analysis of impacts and probabilities of risks in the risk assessment. As the detail of the design advances, the baseline estimate will change (the current estimate is EUR 1.59 billion, up from the initial EUR 1.35 billion) and needs to be adjusted accordingly. The mark-up for risks can increase – if new risks are identified – or be reduced, depending on the confidence in the risk mitigation measures executed. Internally, the government should operate with the most up-to- date estimates. The public should be periodically updated, at least at the key points of the project development, to maintain buy-in to the project and the credibility of the government. Not finding the political will to operate with the most likely number, even if they impinge negatively on the project’s CBA, could have multiple adverse implications. For example, were the project significantly delayed, part of the funding may be deferred to a subsequent financial planning period, making the final share of the EU co-funding uncertain. Using a lower official cost estimate clearly would not play into Estonia’s best interest. Furthermore, operating with numbers and deadlines that are unlikely to be realistic does not incentivise a culture in which people strive to present numbers and impacts as they truly are. This means fewer opportunities for decision-makers to find out about risks and problems before they actually occur and at which point they could still do something about them. The public clients procuring infrastructure should pilot alternative procurement approaches to stimulate innovation The traditional lowest price design-bid-build delivery model delivers very good performance in most infrastructure projects and should remain the backbone of procurement. That said, the same approach also stifles the information exchange between the bidding contractors and the public client and involves the contractors only after the detailed design is already complete. In the last decades, approaches have emerged that involve contractors earlier in the process and are based on the principle of negotiation rather 58 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS than competition (e.g. early contractor involvement). Best value rather than the lowest price is the focus of these projects. In elements of larger projects, where there is high uncertainty or many alternative solutions may exist, it may make sense to pursue approaches where the contractor can start working with the designer and the client early on to identify alternative solutions or propose innovations. The work on the performance of these alternative contracting approaches and their ultimate impact on value, cost, and time of delivery is still in its infancy, despite a few decades having passed since their emergence. Estonia should take a cautious approach and pursue alternative contracting formats, at first on a pilot basis, ensuring a large dissemination and analysis of outcomes. One way to identify appropriate projects would be to introduce the procurement strategy decision model piloted in Australia (ITF, 2018b), as pointed out above, to best identify where alternative contracting approaches could fit best. 2.4. Infrastructure funding and the role of private finance Estonia has only just begun introducing public-private partnerships (PPPs) and is considering their use on road infrastructure projects, using an availability-based model. Given that this procurement option is only now being considered, there is no key issues analysis to a large extent this section aims to highlight the policy risks and opportunities of this option, based on the state-of-the-art. It builds on ITF (2018), where the evidence and propositions around private finance in infrastructure were comprehensively reviewed. This section also draws substantially on the work conducted under several other topics, notably the approach to project selection and the share of road funding available from user charges. This section investigates: 1) the views toward PPPs held by Estonian officials at the time of meeting; 2) the role of private finance in infrastructure procurement; 3) challenges related to PPPs and points of attention, should Estonia choose to pursue them; and 4) the options Estonia has, if it chooses not to pursue PPPs. Avenues for reform Estonia requires further clarity on PPP outcomes concerning policy implications, potential execution challenges and the nature and merits of available public-sector alternatives. Estonian officials are aware of the perverse incentive arising from the European system of accounts standard ESA10. This standard does not require debt incurred as a result of using PPPs to be included in the public debt statement.. In addition, (such as those discussed in the institutional structure section of this report). What follows here are suggested areas for reform. Communicate the difference between funding and financing and the role of private finance in infrastructure and beyond Public-private partnerships (PPPs) are surrounded by a range of propositions regarding their benefits over traditional public procurement. Makovšek (2019) analysed the central propositions in detail, including the following three roles, where PPPs can:  yield productive efficiency gains over traditional public procurement and management  improve allocative efficiency by preventing the state from building projects that are not financially justified, i.e. the roads to nowhere  alleviate public borrowing constraints, implying PPPs could help solve funding problems. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 59 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The evidence of the productive efficiency of PPPs does not show a uniform picture A firm or a project achieves productive efficiency when it produces a given quantity of output at minimum cost. The measurement of efficiency changes can be done by comparing the performance of a system before a change that would improve performance was made and after. Alternatively, a system could also be compared to others to see whether these perform better or worse. Despite the use of sophisticated quantitative techniques, it is challenging to achieve like for like comparisons, when comparing different forms of governance (and ownership). Makovšek (2019) reviewed evidence for the road, rail, aviation, maritime sectors and concluded that there is no conclusive evidence that PPPs lead to superior productive efficiency outcomes in road and rail projects. Most of the studied PPPs were road projects. However, a lack of systematic performance data collection by the governments to-date inhibited investigations into the value-for-money of projects. The use of PPPs on port and airport projects do show performance improvements, but robust conclusions are difficult to draw because the introduction of PPPs is frequently accompanied by other institutional or regulatory reforms. Another particular challenge is ensuring randomisation, i.e. if governments do not choose projects to be procured as PPPs randomly, then some underlying characteristics may drive their choice and comparisons with traditional counterfactuals will be biased. PPPs cannot improve project selection or prevent the building of “roads to nowhere” One of the benefits ascribed to PPPs is that they could improve project selection. Engel, Fischer and Galetovic (2020) argue that user-funded PPPs could prevent the pursuit of white elephant projects, as the prospective private partners would reject projects that could not recover their cost. While this proposition goes back to Adam Smith (1776) and his Wealth of Nations20 it does not take full account of the nature of current project selection processes today. Makovšek (2019) explained the challenges if the government retains the power to choose the procurement mechanism and what happens if the government is relieved of that power. If the government retains the power to choose the procurement mechanism a PPP cannot improve project selection. Before the start of procurement, a cost-benefit analysis is generally undertaken, and this requires a traffic forecast. Governments generally do not do traffic forecasts themselves, but buy the service on the market. If a government wants to pursue a project but knows ex-ante that the project is unlikely to be able to recover its cost through tolling in a reasonable amount of time, it would not pursue a PPP test in the first place. Alternatively, if a government decides to build a motorway programme by requiring that all projects first be submitted to a PPP test (or all those that scored a positive CBA result), only those projects that achieve required capital market rates of return would proceed. Assuming PPPs would be more cost-efficient than public sector models, the proposition above is problematic because:  the capital markets' appetite for risk is not stable and required rates of return may not necessarily reflect or be correlated to the social desirability of the project (see fluctuation in demand risk appetite in Makovšek (2019)), i.e. the risk sensitivity of capital markets may be elevated due to reasons pertaining to the markets themselves and not to the demand and tolling potential of a particular project.  there may be a substantial number of motorway sections that are desirable in terms of their cost- benefit evaluation, but cannot satisfy the return requirements of the private sector. If these are left to be executed by the government, then the PPP filter would achieve nothing. If the government does not pursue them a substantial social welfare gain would be lost. If the execution of the cost-benefit analysis would be transferred to the private sector then a perverse incentive 60 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS would be introduced to approve as many projects as possible, replacing one moral hazard with another. Further to the above, there are other ways the government could side-line the PPP filter. For example, many governments have established motorway companies which handle the entire national network and are funded by tolls (e.g. DARS in Slovenia, AsFinAg in Austria). Within these networks, there may be sections that were not economically justified but are cross-subsidised by others. A government could do the same when designing the scope of a PPP – selecting sections that would cross-subsidise those that cannot recover their cost, while still achieving the required private-sector return overall. These issues could potentially be addressed only if the private sector would also be responsible for infrastructure planning. As this would open a range of new issues difficult issues no advanced economy to date relinquished its role as a central infrastructure planner to the private sector. In summary, project selection is endogenous to the government and, for the time being, no mechanism has been invented that could successfully take that responsibility away. Therefore, PPPs cannot contribute to an improved selection of projects. PPPs do not give the state more money to spend A common misconception of PPPs reflects confusion between the concepts of financing and funding. It has been widely assumed that, by marshalling private capital investment, the government can expand its pool of investment funding. However, this view ignores the fact that this additional capital investment be repaid with a return, in the same way as if governments were to fund the project directly by issuing bonds. PPPs are both a procurement tool and at the same time a different means by which a government can borrow. Regardless of the form of the borrowing, repayment requires the use of either general or dedicated taxation or user charging. A further false impression is that PPPs can extend the public borrowing constraint, i.e. that the state, through the PPPs, can actually borrow more than it could otherwise. This issue arises from the application of inadequate accounting standards which do not properly recognise the assets and the liabilities related to PPPs in the public sector balance-sheet. In consequence, the liabilities related to the PPPs, be it availability based or funded by user charges, generally do not have to appear in the statements of public debt as reported to the European Union. The European system of accounts (ESA10), despite past reform attempts, still allows off-balance sheet treatment of PPPs, thereby creating a perverse incentive for their use. These accounting deficiencies create the impression of lower than otherwise public debt, but they do not, in fact, increase borrowing capacities. If PPP funding is availability based (i.e. they are funded from the general budget) the government needs to pay an annual charge, usually for decades. This will allow the current government to spend more but limit investment opportunities for future governments. If many PPPs are pursued, a substantial portion of government expenditure will be fixed in advance, limiting budgetary flexibility. The latter dynamic explains why Estonia in 2012 abandoned the ring-fencing of tax revenues for roads and other purposes: that is, this change allowed it to better manage large changes in the fiscal situation, such as during the last Global Financial Crisis. The International Monetary Fund (IMF) has developed a tool for monitoring fiscal exposure to PPPs (PFRAM – PPP Fiscal Risk Assessment Model), which enables this challenge to be managed. A more serious issue is that the incentive to pursue PPPs for accounting purposes can lead to new projects being pursued on a value-for-money basis, being watered down or ignored. This risk is exacerbated by the weaknesses in Estonian project identification, appraisal and selection processes identified and analysed in Section 2.2. Infrastructure Planning and Project Selection. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 61 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS In countries with substantial experience in the use of PPPs, such as the United Kingdom, a persistent criticism has been that governments have been unable to secure an unbiased selection of procurement options. Despite various measures to ensure a balanced selection, in practice ministries often faced a situation in which a project could only be funded if it was a PPP or not at all (NAO, 2018). Ultimately, criticism from the National Audit Office and the academic community, together with several prominent failures of PPP initiatives, led to the loss of political support for privately-financed infrastructure projects in 2018.21 Given that Estonia is obliged to use the ESA10 standard as a member of the European Union, its options on how to address a bias towards PPP will be limited, but some proposals are included below in “The use of PPPs in Estonia: Critical Success Factors for PPPs”. Other proposed benefits of PPPs PPPs tend to get associated also to other benefits (see e.g. Engel, Fischer and Galetovic, 2020), which depend on the public sector alternative – the counterfactual we choose to compare PPPs with. Commonly, when citing PPP benefits, the weakest or the legacy public sector alternative is used. The public sector legacy approach to infrastructure governance involves a public agency, which is funded through the general budget and contracts construction and maintenance activities from the private market. This is how the road sector is managed in Estonia and the same model can still be found in many other countries around the world. Funding through the general budget has two implications. First, raising money through taxation gives rise to a deadweight loss that economists call the marginal cost of public funds (MCF), because taxes disincentivise people from working. Every Euro raised through general taxation, therefore, has an extra cost to the society. A short explanation of this concept is available in Makovšek (2019). Second, countries have found it difficult to maintain consistency in infrastructure spending over time, leading to large maintenance backlogs in some cases (see data for Europe in Makovšek (2018)). The consequences of insufficient infrastructure maintenance are not immediately visible. The annual political negotiations around the general budget can affect the predictability of maintenance budgets and thereby impair the efficiency of maintenance planning. Any infrastructure organisation with a predictable and sufficient maintenance budget will perform better in terms of maintenance performance than one that faces an uncertain budget position over the next several years. Availability-based PPPs include a contractual obligation for the state to pay an annual charge, which supports the predictability of maintenance budgets. That said, no country manages all roads as PPPs. If tolling is not introduced; procuring a few projects as PPPs will provide a better maintenance standard, but the rest of the network will suffer in comparison. Introducing tolls to fund PPP projects is a political challenge. But if a country is able to introduce tolling, it can do so regardless of the procurement model chosen. Many countries (e.g. Austria, Slovenia, Slovak Republic) have established toll-funded motorway companies, which are independent from the annual general budget political cycle. These companies can also disperse traffic demand risk through their entire network, as well as over time, by adjusting the tenure of their lending portfolios, by refinancing to secure the best interest rates.22 The same company can use modern infrastructure procurement contracts such as Design-Build or Early Contractor Involvement if they want to put greater stress on innovation to lower the cost of infrastructure. The counterfactual to a user-funded PPP is a user-funded, state-owned infrastructure manager of a network or in larger countries a part of a network. This issue and the efficiency incentives associated with it are further explored below. 62 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Consider systematic reforms of public infrastructure governance rather than piecemeal PPP interventions What is the core issue with PPPs? In the absence of hard evidence, support for PPPs has relied on theoretical propositions, such as the high- powered incentives within PPP contracts (e.g. high penalties to contractors if they fail to deliver on time, fixed budget) and the bundling of project phases. So far, the very drivers of efficiency in PPPs have received insufficient attention, which also has an offsetting impact, increasing uncertainty for the bidders, when they need to price the contracts (ITF 2018). For example, if the bidder needs to commit to a fixed price and date of delivery, taking full responsibility of the design and construction of a project, it is expected they have a reasonably precise view of the resources and time needed for project completion. If the bidder cannot estimate these quantities precisely, a very high contingency allowance will be introduced. Risk-averse behaviour implies that, on average, these contingencies will be too large. The PPP model lacks any ex-post mechanism to control for exorbitant economic rents. This issue exists in all availability-based PPP contracts and contracts, which are user funded, but the users are captive and have a limited opportunity to respond to something like service quality issues. All road PPPs, for example, demonstrate these characteristics, since PPPs on new sections are not accepted by the market unless exclusivity is guaranteed and users have no comparable travel options. Conversely, ITF (2018) suggested that the use of PPPs is recommended in cases where users can strongly respond to changes in service-level quality (demand is strongly endogenous). Marine port or airport PPPs competing for the same catchment area meet these criteria. In this case, the PPP consortium will be under continuous pressure from other competing service providers; providing a continuous efficiency incentive and eroding abnormal rents. What are the public alternatives to public-private partnerships? One of the main alternatives to PPPs relevant to Estonia is the corporatisation of the management function of infrastructure (Section 4.1.). This would imply, in particular, the transformation of the road agency into a road company. Another alternative is that the management of infrastructure assets includes a form of incentive regulation known as the Regulatory Asset Base (RAB) model, commonly used in the regulation of utilities. The United Kingdom is one of the first countries to have applied this approach to its motorway company. If this were to be done in Estonia it would involve the current regulator (Consumer Protection and Technical Regulatory Authority - TTJA) taking on an additional role. This would be the function of incentive regulation; monitoring and stimulating the efficiency of road infrastructure management, as well as that of other infrastructure managers where competitive pressure is lacking, such as the national airport and the railway infrastructure. To maximise the efficiency potential of the state-owned infrastructure managers, their funding should be independent from the general budget, where possible. In the road sector in particular, Estonia should, therefore, introduce tolling on roads and reintroduce fares in public transport, as proposed in Section 2.5 Steering User Behaviour and Public Transport Policy. Since the Estonian citizens are already paying for the infrastructure, effectively through fuel taxes, it should be achievable to introduce tolling by offsetting a portion of the fuel taxes. As an example, in Denmark, the Sund&Belt holding owns several State-owned companies, which fund themselves. The holding also benefits from a state guarantee, financing itself at a cost premium on 0.50% THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 63 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS higher than the risk-free rate of the state. Despite this, the Eurostat rules still allow the company to be off the balance sheet (Figure 4). Figure 4. The state-owned infrastructure manager Source: Holm and Horstmann-Nielsen (2018). If a newly created Estonian road company can manage to recover more than 50% of its cost through tolls (alongside other less demanding conditions), it would be possible to treat the company and its financial obligations as off the balance sheet, as is done with PPPs. This is done at present in several countries. In Slovenia for example, DARS is responsible for the entire national motorway programme, which was built over a period of 20 years. The company is funded through tolls for heavy-goods vehicles and vignettes for private cars. As the company is responsible for several billion euros of debt related to the national motorway programme, governments have been careful not to endanger its capacity to service the debt. A failure to reach 50% cost recovery could lead to the re-categorisation of its obligations and an instant substantial increase in public debt. This political disincentive to interfere in the funding flows of the company has promoted the predictability of funding. This is an essential element of an effective maintenance strategy. A key aspect of the structure above is that it represents a comprehensive approach to the management of network industries and the execution of transport policy. By contrast, applying PPPs on occasional sections of the road network, together with a public governance approach would make the execution of transport policy changes, network-wide, more difficult. Any network-wide reforms would likely require renegotiations of the PPP contracts. The use of public-private partnerships in Estonia: Critical factors for success If the Estonian government decides to pursue PPPs, it should do so within the context of a detailed policy framework that reflects international best practices, in order to maximise the likelihood that projects are executed successfully and improve value-for-money. There is an abundance of guidance available from intergovernmental organisations, which promote the use of PPPs, such as the European Investment Bank’s The European PPP Expertise Centre (EPEC)23, the World Bank24 or the Global Infrastructure Hub.25 64 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS This extensive guidance concerns:  the legal/regulatory framework  institutional arrangements  PPP project selection and preparation  contract management Estonia has prepared draft guidance materials on PPPs (TGS Baltic, 2019a; TGS Baltic, 2019b) which covers much of this material, but leaves room for improvement. Several of the misconceptions with regard to the proposed benefits of PPPs have found their way into the draft guidance on PPP application in Estonia (e.g. the ability to improve project selection, the ability to spread cost over time. This should be amended to represent not only the probable benefits but also the risks of using PPPs. Useful starting points are in the analysis further above. Below are some caveats that concern the last three bullet points; separating the third into two separate areas of discussion. Institutional arrangements The execution of a PPP programme will require the establishment of a PPP knowledge centre. This should be absorbed by the proposed Technical Resource Centre, where the procurement expertise would be concentrated and in line with the recommendations of Section 2.1 Institutional Structure. If eventually technical resource centres are also established by other sectors (power, water, housing), these could co-ordinate the creation of PPP guidance and technical support beyond their own sector with oversight by Infrastructure Estonia, a cross-sectoral body, also proposed in Institutional Structure. Project selection A key element in supporting the adoption of an unbiased approach to PPPs would be the introduction of the IPSAS32 public accounting standard, which Estonia has already done. The use of this standard was recommended by the IMF (Funke, Irwin, and Rial, 2013) for financial reporting to citizens and the market. IPSAS32 is based on accounting principles (specifically, that of economic control), which ensure that obligations related to PPPs are recorded on the public balance sheet, contributing to greater transparency.26 The bias towards PPPs caused by the accounting treatment of PPPs in the European Union can not be fully neutralised as long the European System of Accounts is not reformed. That said, Estonia could still take steps to try to ameliorate the bias. The first step is to increase transparency. This can be done by summarising obligations and contingent liabilities related to PPPs and making this available to the public via the government budget and discussed in fiscal policy (IMF, 2019). Secondly, Estonia should seek to neutralise imposing a choice on the decision-makers of specific projects. This is particularly relevant where a project can only go ahead as a PPP or there will be no project. In the past, countries used the Public Sector Comparator to assess which PPPs might be better value for money, in terms of project selection. This tool suffered from a lack of empirical data, relied on unproven strong assumptions, was biased in the favour of PPPs, and was ultimately abandoned in the country that was the first to advocate its use – the United Kingdom (see the PPP’s do not give the state more money to spend section above). Elsewhere, qualitative reviews have been developed to decide whether a project is appropriate to be executed as a PPP and not as an assessment and whether the PPP is better than the public sector alternative.27 However, unless the project is very small, most can be structured in such a way THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 65 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS as to be procured as a PPP. If Estonia decides to pursue PPPs it should not develop a Public Sector Comparator as no country collected sufficient data to make such an analysis meaningful. Instead, Estonia should adopt a simple assessment to determine, which projects might be more or less appropriate to be deployed as PPPs.28 One consideration is that of the appropriate project size. Reducing project size (for example by breaking a road project into several separate contracts) creates disproportionate transaction costs and leads to the introduction of many interfaces between contracts, giving rise to additional risks and costs. Smaller projects also have difficulties in attracting sufficient interest from international capital markets, leading to higher financing costs. Estonia should, therefore, avoid atomising PPP contracts to ensure local participation. On the other hand, letting contracts above a few hundred million (EUR) in value will reduce the number of international contractors that could bid (e.g. see Roumboutsos, 2020). Project preparation One issue that the project preparation guidance published by international organisations in relation to PPPs does not yet accommodate is the recent recommendation by the ITF Working Group on Private Investment held in 2018, which concerns the targeted de-risking of PPP projects. The objective of the de-risking is directly related to the challenge laid out in the What is the core issue with the PPPs section above. The bundling of project phases and the requirement to deliver on-time and on-budget increases the uncertainties faced by contractors in the PPP consortium. As laid out in Kennedy et al. (2018) a range of actions can be taken by the public client to reduce the uncertainty bidders face during the tendering process. A precondition to the effective reduction of uncertainty ex-ante is also to apply a tendering process that is best suited to facilitate an information exchange between the client and the bidders – this is the competitive dialogue process. Here we cite just two examples. One example concerns the level or project design. Currently in PPPs at best an outline design is made available to the bidders, which implies that about 15% of the engineering is done. During the bidding process, the bidders have to develop the rest of design in a very short time period and with a possibility that they might lose the bid. It is recommended that the public client makes a fully-costed reference design available, with degrees of freedom in cases where it is expected the PPP bidders might do better/provide alternative solutions and a detailed design with full permits acquired, where this is not expected or desirable. Another example is to pursue joint risk-management with the PPP bidders during the competitive dialogue. This will help the client identify who is able to mitigate or manage which risk at the lowest possible price, ultimately reducing the cost of risk across the project. The public client could then also make informed decisions regarding what cost will the transfer of particular risks entail and whether certain risks are best managed within the public sector. Undertaking such measures will reduce the cost of the PPP without adversely affecting the efficiency incentives in the model, i.e. value-for-money will be improved. Contract management The operational phase of the contract brings a different set of challenges. While compendia of good practice are available (https://managingppp.gihub.org/), a fundamental challenge with regard to PPPs is contract renegotiation. 66 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS This is the case especially in emerging economies or where there is a lack of experience with PPP delivery and management. PPPs contracts typically last for several decades. During such extended periods, unforeseeable events are likely to arise which will require contract renegotiation. A policy framework should be developed ex-ante to address such renegotiations and ensure that their outcome is not a significant reduction in the value-for-money of the PPP over time. The ITF (2017) published a comprehensive review and recommendations with regard to these renegotiations and we recommend this document be used as a basis to frame a PPP renegotiation policy. Among other things, the establishment of a PPP arbiter or regulatory body is recommended. Two key points were that renegotiations should only be allowed in exceptional cases and that an independent body should be tasked with determining when renegotiation of a PPP is legitimate. A further issue that concerns the operational phase is information sharing. One important aspect, for example, the sharing of information on traffic flows, which may be needed to inform the national transport model, assess the viability of adjacent road projects etc. As the private partner is not required to service any information requests other than those specified in the contract, it is vital that Estonia considers what information should be reported to inform policy decisions. This will also help to create a more level playing field in case the need for renegotiations will arise during the operational phase of the project. The World Bank guidance on PPP contractual provisions, particularly on disclosure and confidentiality, should be a useful reference point to start with to address this issue (WBG, 2019). 2.5. Steering user behaviour and public transport policy The International Transport Forum (ITF) reviewed the current state of urban passenger transport and the main mobility trends in Estonia. It analysed the current fuel and vehicle taxation regimes, the organisation and pricing of public transport, and urban planning. This section highlights key issues in Estonia and presents the conclusions of ITF’s analysis. It recommends an integrated set of reforms that would support a shift to sustainable and low-emission transport systems in line with Estonia’s ambitious national and global climate change mitigation goals. Key issues Transport planning and investment decisions have largely sought to cater to the growing number of private cars by adding road capacity and providing sufficient parking space. However, it is well established that car-centred planning leads to additional traffic (i.e. induced demand29), does not ease congestion nor reduce environmental externalities (Standing Advisory Committee for Trunk Road Assessment [SACTRA, 1994]). On the contrary, this approach has encouraged dispersed patterns of development and resulted in longer journey distances. There are also harmful consequences in terms of quality of life, health, distributional issues and climate change. Estonia is one of the most transport- and energy-intensive economies in the European Union. To a large extent, this is the result of the unmanaged growth in private vehicle use. Prioritising private vehicles in urban planning has also led to the underdevelopment of public transport options, which has, in turn, accentuated spatial inequalities. Unplanned urban sprawl resulting from the lack of integration of land-use and transport planning and weak planning control have also contributed to increasing accessibility issues. Estonian policy makers need to re-examine the rationale behind Estonian mobility policy and transport infrastructure investment in order to underpin a move toward a more sustainable transport system. Rather THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 67 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS than accommodating traffic growth, the emphasis should be on reversing car dependency and encouraging less damaging forms of mobility. This shift in approach implies providing adequate and equitable access to opportunities through public transport, walking and cycling. These changes would contribute significantly to efforts towards mitigating climate change, as well as reducing air pollution and its associated health impacts. However, the transition of the transport sector will give rise to conflicts between environmental and social objectives. It is necessary to identify groups that require targeted compensation to ensure that individuals, particularly the most vulnerable, do not bear excessive costs. The following sections set out key obstacles to reducing car dependency and promoting more sustainable modes of travel. The analysis covers fuel and vehicle taxation, public transport organisation, and pricing and urban planning. The inconsistent tax treatment of different modes encourages the use of cars and fails to provide incentives to choose less polluting cars Road transport accounts for a large and rising source of greenhouse gas (GHG) emissions in Estonia. Passenger cars have the highest average CO2 emission levels in the European Union and worst fuel economy (European Commission, 2016). New vehicles purchased in Estonia have the highest average CO2 emissions in the European Union, at 132 grams per kilometre, compared to the 2017 EU average of 118.5 grams per kilometre (EEA, 2018). Ownership of passenger cars is higher than the EU average, and cars are older and larger than the EU average. This is largely the result of low and inconsistent vehicle taxation levels. Estonia does not have any vehicle taxation apart from a circulation tax for heavy goods vehicles and a low, flat vehicle registration fee. Taxation of motor vehicles accounts for only 2.5% of environmental tax revenues, well below the OECD average of 24.5% (OECD, 2017). Estonia does not levy any user charges on private vehicles, neither at the national nor at the city level. Estonia levies an excise duty on transport fuels, other than biofuels. Despite a number of increases in the excise duty, emissions from cars have not decreased noticeably (EEA, 2017). As in most OECD member countries, petrol is taxed at a higher rate than diesel, despite the fact that the use of diesel yields more CO2 than an equivalent volume of petrol and its use in even the most recent engines produces more local air pollutants, including nitrogen oxide (NOx) and particulate matter (PM). In the first quarter of 2020, the excise tax for petrol was EUR 0.563 per litre, while the tax for diesel stood at EUR 0.493 per litre. On 1 May 2020, however, as part of measures aimed at combating the Covid-19 crisis and its economic effects, Estonia opted to cut diesel fuel excise duty by 25% to EUR 0.372 per litre for two years. When the external environmental costs are taken into account, there is no good basis for taxing road diesel favourably relative to petrol (Van Dender, 2019). The reason for lower rates is to reduce tax on commercial transport, which is an intermediate service; in principle, it is more efficient to tax end products. A system of partial diesel excise tax rebates, as practised in some EU member states, is a more suitable approach that avoids distorting the passenger car market. 68 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Figure 5. Diesel and petrol excise duties in EU member states, May 2020 900 Diesel 800 Petrol 700 Euros per 1000 litres of road fuel 600 500 400 300 200 100 0 Source: European Environment Agency, https://www.eea.europa.eu/data-and-maps/daviz/road-fuel-excise- duties-6#tab-chart_1. Fare-free public transport is not financially sustainable and has not encouraged modal shift Fare-free public transport (FFPT) was introduced in the city of Tallinn in 2013 (Box 1). In July 2018, it was extended throughout the whole country. Eleven out of fifteen counties have agreed to offer free public transport for all. Those municipalities that opted out of the scheme must still provide free public bus services to all persons aged under 19 and over 63. The Estonian government established public bodies Public Transport Centres (commonly referred to as PTAs) to run bus services in the regions. The State also provides support to consolidate bus lines, order new vehicles and improve services. Fare-free travel is not provided on some lines, in particular those that cross county boundaries. This is because some PTAs – West-Viru, Harju, Rapla and Parnu – have chosen not to implement fare-free bus transport for all. When a county opts out of the fare-free system, it not only misses out on additional funding from the national budget allocated for county public transport, it must also pay for additional transport concessions. For instance, Harju County's transport centre (North PTA) reported that ridership on some lines increased by as much as 60% after the requirement to provide free public transport to all persons aged 0-19 and 63+ was introduced. This was partially due to the shift from commercial lines previously run in parallel. However, additional services put in place have not been sufficient to meet increasing demand. Commercial bus operators providing service on long-distance and international routes have also been required to provide free service to preschool children and some groups of people with disabilities. These operators provide high-quality bus services that are self-financed via ticket sales. Commercial operators also maintain the bus stations and the ticket selling system. However, commercial carriers do not receive any compensation from the national government for providing this social service. Providing free services to preschool children and people with disabilities is an appropriate policy intervention. However, there is no sound basis for obliging commercial carriers to provide these services without compensation in a situation where the state is extensively subsidising bus and train services. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 69 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Box 1. Fare-free public transport in Tallinn In 2013, Tallinn made all public transport free for registered, taxpaying residents of the municipality. The objectives of the policy were to alleviate congestion and pollution, reduce inequality and promote more sustainable travel patterns. The increased net cost of operating Tallinn public transport (rising from EUR 50 million to EUR 70 million) was covered by additional local tax revenues, derived in part from an increase in the number of residents registered in the city. In 2019, Tallinn had 441 000 registered citizens compared to 416 000 in 2012 (Tallinn, 2019). The migration came from surrounding municipalities, which lost those tax revenues. Since fare-free public transport (FFPT) only applies to registered Tallinn residents, it does not address the problems experienced by suburban commuters. Its measured effects on modal split are marginal with a persistent shift towards private car use over the past seven years across all income groups. Cats, Susilo and Reimal (2016) found that the number of people in Tallinn using public transport instead of cars had risen by 8% but, at the same time, the average length of a car journey had increased by 31%, suggesting increased car use. Flaws in the design of FFPT in Tallinn limit its potential benefits: fewer than 50% of riders regularly validate their ticket. This means that ridership data from ticket validations considerably underestimates boardings. The future financial viability of fare-free public transport in Tallinn is questionable. Increases in resident numbers initially yielded additional revenue to offset the increased net cost of operating the system. However, significant increases in resident numbers are unlikely in a small country with a declining population. Tax revenue for public transport, therefore, will remain at relatively constant levels, limiting the capacity for future investment in public transport. It has been reported that the fare-free public transport policy has increased the mobility levels of rural Estonians, who comprise one-third of the country’s total population and are generally older and less affluent. However, not all residents have access to public transport and overall, the scheme has failed to reduce car dependency. Increases in ridership have often been the result of an undesired modal shift from walking or cycling, or the result of induced demand from residents who were already public transport users. Proost (2017) argues that, by increasing operating deficits and reducing capacity to invest in public transport networks, low public transport prices may result, paradoxically, in a modal shift away from public transport as quality declines with underinvestment. In this view, keeping the prices high enough for stable investing in capacity and service quality improvements is a better strategy than fare-free public transport. If the system is maintained, it will be increasingly difficult to fund as needs for additional capacity and improved quality will also increase. The system is also extremely vulnerable to budget cuts if political priorities change. Therefore, developing a strategy for re-introducing pricing is essential to ensuring that the system is financially viable in the long term and that quality of service will not deteriorate over time. A lack of integration between modes is undermining the achievement of modal shift objectives and efficient service delivery Co-ordination between public transport routes and service providers is usually based on informal negotiation between PTAs, municipalities and Elron - the main rail operator in Estonia. Some PTAs take rail schedules into account when setting timetables for local bus services, but in the majority of cases, inter- modal co-ordination is absent. Connections between lines are often inconvenient and long distances between stops frequent. 70 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The absence of integrated ticketing reflects the lack of inter-modal co-ordination. This is particularly problematic in the capital region, where almost 120 000 commuters travel daily between Tallinn and Harjumaa county and require separate tickets. There are also differences between the tariff systems of the different counties, with some areas providing fare-free public transport, and others not. Among counties that continue to charge fares, some set tariffs on a zonal basis, while in others the price depends on the distance travelled. Moving towards a more co-ordinated approach and eventually integrated public transport ticketing across the country will be essential to making public transport more convenient for users and thereby more competitive vis-à-vis car travel. It will be also help to address the needs of residents of rural areas. A lack of investment means the full potential of existing rail-based services is not exploited Since 2014, rail passenger numbers have been growing. According to Elron’s figures, passenger numbers rose by as much as 50% between 2014 and 2018.30 On certain lines during certain periods, there are too few trains to cater to the increased demand. This has led to measures such as the restrictions on taking bicycles on passenger trains since summer 2019. Speed is another challenge: trains can travel at 160 km/h, but infrastructure factors limit actual speeds to 135 km/h. On some lines – between Tartu and Tallinn, for instance – train travel remains faster than car or bus travel. However, current plans to expand road capacity on the parallel road route may significantly change this, reducing competitiveness of rail services. Most of Estonia's rail network runs on diesel, with electrification limited to suburban trains around the capital. Currently, only 132 of the 1 219 kilometres of the rail system are powered with electricity. Diesel locomotive engines are an important contributor to air pollution and noise emissions. The construction of regional stations on the Rail Baltica route is an ineffective way to improve local accessibility Estonia is planning to build 11 regional stations along a 213 km stretch of the Rail Baltica Route by 2030. This means that in addition to carrying high-speed trains with maximum design speed of up to 249 kilometres per hour, Rail Baltica will enable regional trains to travel at a speed of up to 200 kilometres per hour. Given the alignment of Rail Baltica corridor, the proposed stations risk being located far from areas that can generate sufficient demand. Even with the creation of feeder bus services and the proposed decommissioning of the existing 1 520 mm rail connection, this will not be an effective way of improving local accessibility. The cost of the new stations, which is currently estimated at EUR 2 million each, would not be financed via the RB project funding currently in place. Estonia could apply for EU co-funding, however Estonian participation will still be required. It is currently anticipated that funding will come from the sale of carbon emission credits, with European Union support, or the state budget. However, these funds could be directed towards other, more cost-efficient, investments. Estonia should re-evaluate the need for regional stops along the Rail Baltica route and conduct an additional in-depth assessment of costs and benefits for the location of any proposed stations. Urban transport policies remain car-oriented Current Estonian urban and transport planning practices remain car-oriented and the mode share of private cars continues to grow. Tallinn dominates in terms of commuting volumes: around 80 000 people travel to the city daily and a majority of these trips are made by car. In Tallinn and Harju, the total annual circulation of vehicles (million vkm) has increased by approximately 2.5 times in 18 years (SUMP, 2019). As a result, Tallinn and its neighbouring regions account for around 50% of all Estonia's transport THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 71 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS emissions. Policy reform is essential if the negative externalities associated with excessive car use are to be reduced. Figure 6 illustrates CO2 emissions of passenger transport in Estonia. Figure 6. Total tonnes of CO2 emitted by mode of passenger transport in Estonia 120 000 100 000 Tons of C02 per annum 80 000 60 000 Other Cities 40 000 Tallinn 20 000 0 Car Bus Motor 2/3 wheelers Note: The numbers are broad estimates made using the ITF global urban model (2019). Source: ITF (2019). On-street and off-street parking pricing: The cost of parking in urban areas is an important determinant of whether citizens choose to drive to a particular destination. Some Estonian cities (notably Tallinn and Tartu) apply reasonably high parking charges to areas in their centres. However, cities control only a limited proportion of the stock of parking spaces. Tallinn, for instance, has a three-zonal system with only about 5 800 parking spaces in paid parking lots and paid on-street parking spaces managed by the city. But there are thousands of private off-street parking spaces that are usually cheaper. To date, no attempts have been made to control the price of these private parking spaces, as is done in numerous other cities, for example, by taxing them. Revenues from on-street parking go directly into the general budget, with no indications to redirect toward transport or urban realm improvements. Whereas, in many other cities worldwide, revenue from increased parking prices is allocated to improving the attractiveness of other transport modes. Parking regulations: The large number of privately owned parking facilities and the planning requirements to provide additional parking for all new developments weaken the impact of policies of charging high prices for publicly owned parking spaces. All cities in Estonia have requirements that developers provide minimum numbers of parking spaces in new developments. These local building regulations usually are derived from (non-mandatory) national design standards and the general guidance provisions of the building code. Regulations that set minimum requirements for the provision of parking encourage an over-supply of parking and bundle the cost of unnecessary new parking with new housing. This leads to over-consumption of valuable land, while added parking-related costs can make it financially unviable to develop more 72 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS affordable housing units. Tallinn has already announced its intention to abolish minimum parking requirements in the city centre in its Sustainable Urban Mobility Plan. This trend, however, needs to be reinforced by other urban areas in the country. Road space allocation in urban areas favours private vehicles: Due to the rising modal share of private cars more and more green areas and public spaces have been converted into parking lots. This has a negative effect on liveability, health and quality of life. At the national level, goals for increasing the share of walking and cycling are already included in several strategies. However, the main responsibility for achieving higher shares for sustainable modes lies with local municipalities. In particular, provision of cycling infrastructure and improvements to the urban realm largely falls under the responsibility of local governments. However, in most cities and towns bicycle planning is poorly institutionalised and even where a cycling strategy exists, there is a mismatch between developed strategies and follow-through. Similar observations can be made in relation to policies favouring pedestrians. Tallinn was the first Estonian city to adopt a cycling strategy, in autumn 2017. Tartu completed its first cycling strategy in January 2019 and began the implementation of a bike-sharing system in June 2019, which has reportedly been very successful. These interventions, however, were adopted at the same time as contradictory policies of providing new and wider roads to cars and, in Tartu, the continued provision of free parking, including the opening of a new free parking facility in the centre of the city in 2019. In sum, the efforts to increase the mode share of sustainable modes have been undermined by other interventions that make car use more convenient and attractive. Pedestrians and cyclists are highly vulnerable in urban traffic. The fatality risk of pedestrians is much higher in Estonia than in countries with good safety performance: Estonian pedestrian fatality rates are three times higher than in Finland (Pratelli, 2013). In road maintenance, limited attention is paid to the situation of pedestrians, and pavements are frequently in a deteriorated state, particularly in winter. There is no integrated approach to street maintenance: the owner of each adjacent lot is responsible for footpath maintenance. As a result, the maintenance of pavements in winter is often uneven, and pedestrians find themselves vulnerable to falls and obstacles. The lack of land-use and transport planning integration contributes to urban sprawl: Urban sprawl has increased sharply since the early and mid-2000s, in parallel with the rapid increase in the use of private cars. The privatisation of land following Estonia’s independence has led to unplanned low-density development, as the reform process did not include the specification of density requirements. Numerous industries relocated outside Tallinn’s city centre, where property prices were low. Commercial malls built on the outskirts of Tallinn became a common sight and led to increased reliance on private car use. These developments were not part of a spatial planning strategy and were not integrated with any transport plans or policies. In many cities, development controls continue to be weak. As a result, many people live far from jobs and are not well connected to them by public transport. The lack of public transport provisions and basic services (such as schools or medical centres) in suburbs has contributed to car-dependent transport patterns for trips between Tallinn and its suburbs. The main issue is that there are no clear links between urban planning and transport policy in Estonia. The Ministry of Finance is the main body responsible for designing and co-ordinating regional and urban development at the national level, yet there are no regional rules that make the provision of public transport links a compulsory requirement for the developers of new developments within or outside urban areas. Many municipalities in the country lack a comprehensive development plan and do not have a comprehensive overview of ongoing developments (e.g., in the form of electronic database). They also lack the capacity to enforce specific rules regarding density or proximity to public transport on developers. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 73 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Avenues for reform The following identifies policy tools that national and local governments in Estonia can use to facilitate a transition to more sustainable transport systems. It also provides insights into the likely effectiveness of these policies and the key ways in which policy design will affect effectiveness and efficiency. Finally, it highlights potential synergies between these policies as well as potential negative interactions. Adopt a differentiated vehicle purchase or ownership tax to encourage improved fuel efficiency Incentives to purchase clean and energy efficient cars should be adopted as a priority to reverse current trends of increasing emissions from passenger transport. This could be achieved by a differentiated purchase of registration tax or a differentiated circulation tax. Both forms of tax can have significant impacts in encouraging the purchase of more fuel-efficient, lower-emission vehicles. A purchase tax for new vehicles would probably have the strongest influence on the shape of the fleet, as consumers are more sensitive to the purchase price. The efficiency of such taxes depends critically on their design. Experience to date shows that tax systems based on a linear and continuous relationship between the tax rate and CO2 emissions are the most efficient. The main alternative, of classifying vehicles into different emission rate bands, with lower tax rates applied to lower emission bands, suffers from the disadvantage that its incentive effects are discontinuous. That is, a manufacturer has no incentive to seek further emissions reductions unless the result is a move in the vehicle’s classification to a lower tax band. The result of this defect is frequently seen as a “bunching” of vehicle emissions at levels just below the ceiling levels for each tax band. An alternative is to combine purchase tax with a rebate/subsidy for more fuel-efficient vehicles. This is referred to as a “feebate program”. The example of France shows that the way the feebate system is designed has an important impact on both its performance and budget. In particular, the rate at which the so-called pivot point (the point that marks the level of efficiency beyond which performance is incentivised) is set is a critical component. Whichever system is chosen, tax bands (if used) and rates should be updated regularly in order to maintain the incentive effects of the tax as average emissions performance improves. Applying a differentiated tax based on CO2 emissions on used cars brought to Estonia from abroad could discourage the large-scale import of older cars (around 30 000 such cars are currently imported each year). However, this could be a less effective alternative, as it may limit capacity of low-income residents to buy a more fuel-efficient car at a price they could afford. Such reform could also be criticised as being regressive in nature, in that it would heavily tax more affordable (i.e. used) vehicles. In addition, in the case of second hand vehicles, fuel costs constitute a large proportion of overall ownership costs, and the existing high fuel taxes already provide a fairly strong incentive to favour more fuel-efficient vehicles. Old, poorly maintained vehicles contribute disproportionately to emissions and a minimum emissions class limit for first registration of all vehicles, including second hand imports, could help discourage the import of older cars. Consider introducing electronic distance-based charges on passenger vehicles in the long run Moving from an energy-oriented approach based on fuel taxation to distance-based transport taxes will be essential for sustaining a stable tax base in the road transport sector in the long run. Along with the decarbonisation of road transport, the increasing penetration of alternative fuel vehicles and improved fuel efficiency will erode the traditional tax base, which is already under stress in many European countries. For example, In Slovenia, a joint analysis of the OECD and ITF projects a 56% decline of fuel tax revenues 74 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS derived from passenger cars by 2050 compared to 2017 levels 31 (OECD/ITF 2019). With revenues from excise duties levied on fuels in road transport representing 15% of total tax revenue in Estonia, comprehensive transport tax reform to protect revenues should be considered. This means finding the right mix of taxing distances driven, vehicles and fuel. Distance-based charges should ideally be set based on short-run marginal infrastructure costs. There is also a case for differentiating distance-based charges according to vehicle emissions class. If distance charges were to depend on vehicle characteristics, they would help internalise environmental costs and address air pollution in particular. Fuel taxes can play an important role for internalising environmental costs if they are set at least at the shadow price of CO2 emissions. The High-Level Commission on Carbon Prices recommended shadow prices in the range of EUR 37 to EUR 74 for 2020, rising to EUR 72 to EUR 144 by 2050, all in constant 2017 prices (High-Level Commission on Carbon Prices, 2017). Petrol excise duty, currently at EUR 0.563 per litre corresponds to a shadow price of EUR 244 per tonne of CO2. Diesel excise duty, EUR 0.493 per litre until cut to EUR 0.372 per litre on 1 May 2020 as part of the response to the Covid-19 crisis, corresponds to a shadow price of EUR 184 per tonne of CO2. In the long run, road congestion could become an acute issue, especially in urban areas. In this case, distance-based charges provide an opportunity for managing congestion. Differentiation by location and time of day in relation to congestion allows drivers to adapt travel according to the hour of the day rather than being priced off the road. In urban areas, the additional revenues should be used to support investment in public transport and infrastructure for non-motorised traffic, helping to improve the efficiency of urban transport systems overall. Tax diesel fuel at the same rate as petrol, if not more Diesel fuel should be taxed at a rate at least as high as petrol, as its use entails larger negative externalities. According to Transport and Environment, the gap between petrol and diesel in Estonia, until cut to EUR 0.372 per litre on 1 May 2020 as part of the response to the Covid-19 crisis, was EUR 0.07 per litre, which translates into EUR 41 million lost revenues for under-taxed diesel. The decision to temporarily reduce diesel tax will substantially further reduce government revenue, while potentially distorting the passenger car market, and needs to be reversed as soon as the economic situation allows. Estonia should increase diesel taxes to at least the level now applied to petrol. Targeted tax rebates for vulnerable groups should be used to ensure the social acceptability of this reform and minimise any negative distributional consequences. However, these should be time-limited, in recognition of the finite lifespan of motor vehicles. Re-introduce public transport pricing Estonia should develop a strategy for re-introducing pricing in public transport. This reform is needed to reduce operating deficits and increase the capacity to invest in public transport networks. Such action will require a strategic approach and strong political leadership. Fares should be calculated to cover operating costs, while fare structures should be designed in ways that support the objectives of maintaining and increasing market share and service levels. Ideally, future transit pricing policies should move towards fine-grained, distance-based pricing. Adopting a refined time- and distance-based pricing model for both public transport and roads would greatly enhance system efficiency and fairness. With distance-based public transport pricing, each route is divided into fare stages, with a clear boundary point for each stage. This is considered the most equitable basis for fare-setting because it most accurately reflects the cost of providing the service. Given that individuals have a higher willingness to pay for longer trips, distance-based pricing allows more of the consumer THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 75 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS surplus from each trip to be captured via the fare. It is, therefore, generally possible to achieve a higher revenue stream than with a flat fare (Lipscombe, 2016). However, distance-based fares can give rise to uncertainty over the price among users prior to riding. This uncertainty can create a barrier to using public transport as well as equity implications for low-income riders. It is also complex to administer, as it requires sophisticated technology. The alternative of a zonal fare (whether network-based or route-based) is often favoured on the grounds that it is simpler and cheaper to implement and easier to communicate. With a zonal system, the network is divided into zones, with a flat fare applied within each zone. The price is then determined according to the number of zones crossed by the passenger. The trade-off is that passengers travelling short distances across two zones pay relatively high fares, as they have to pay for two zones. Thus, this model, too, presents some equity problems. An effective ticket validation system is an essential element of any fare regime and must be accompanied by an enforcement system, including fines or other penalties for rides that are not validated. These elements are essential to obtaining high levels of fare compliance and achieving the revenue objectives of the fare system. In addition, the data yielded by a robust validation mechanism can be invaluable to transport planners, enabling them to monitor demand levels and patterns, thus informing decisions on changes to service provision. Provide targeted subsidies to minimise the negative equity impacts of reintroducing public transport fares and electronic distance-based charging for car users Almost all public transport fare systems include discounted fares for specific groups. The goal of these concessions is to prevent public transport pricing from forming a barrier to the use of the system by low- income groups. In practice, most concession regimes determine eligibility in terms of membership of broad grouping, notably students and the elderly. However, membership of such groups generally correlates only loosely with financial need. A theoretically preferable approach is to set eligibility criteria that are more direct indicators of financial need, such as income or household status. However, the potential benefits of the better targeting of subsidies must be balanced with the implementation costs involved. Governments that already have a system in place that identifies groups with the relevant characteristics can easily adapt it to a fare system for public transport at little or no cost. The city of Bogota, for example, uses data from the well-established System for Selecting Beneficiaries of Social Spending (SISBEN) to determine eligibility for concession fares on public transport. The SISBEN is a stratification instrument used by Colombia’s national and local governments for programmes related to water, electricity and healthcare subsidies (ITF, 2017). Estonia seems to have a good basis for understanding residents’ income and other characteristics to identify groups that should benefit from a targeted subsidy system and may be in a position to adopt this approach. However, if the approach adopted to determining eligibility for fare concessions is too rigorous, some could potentially perceive it as running counter to broader modal shift objectives. With regard to road user charges, as with any fiscal instrument, these too have implications for social equity and equality. They have a proportionately greater impact on those with lower incomes (are somewhat regressive) but no more so than alternatives such as fuel tax. The majority of vulnerable low- income households in Estonia rely on old vehicles with poor fuel economy, therefore substituting an evkm charge for fuel tax will benefit them if the revenue extracted remains constant. Should the government want to do more, cross-subsidization within the system or targeted subsidies represent additional options. Congestion charges have perhaps the most potential for regressive effects because, depending on scheme design, impacts can vary by location of households and because they are usually levied in addition to 76 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS existing taxes and charges rather than substituting for existing taxes on transport. Car-dependent low- income households can be vulnerable to loss of income from a congestion charge (Cain and Jones, 2008), but given their small numbers, targeted subsidies would be a much more efficient way of addressing the problem than foregoing the overall benefits of charging reform. In European cities, the majority of vulnerable low-income households have no access to a car, and if charging revenues are recycled into public transport most benefit from congestion charges. Overall congestion charges have been found to be no more problematic than other transport sector taxes and charges (Eliasson, 2016; ITF, 2018). Develop a clear and sustained communication plan to support the introduction of public transport and electronic distance based road pricing for cars Both the motivation for fare policy changes and the changes themselves need to be clearly communicated to the public. It will be important that the public understands that the funds currently used to cover operating costs will be redeployed towards quality improvements and needed expansion of the network. This will allow for revenue from ticket sales to be used to cover operating costs.32 This is how the Estonian government can put enhanced reliability, regularity, travel time and frequency at the centre of the conversation. Focusing on the role of increased fare revenues in supporting and enabling the expansion of the system’s coverage and improved service quality will help increase the acceptability of the fare reforms. The same logic should be followed when introducing electronic distance-based charges for cars, explaining that users with lower incomes with actually benefit (if fuel tax revenues are offset as proposed) and that the new system will ensure road infrastructure quality is maintained or improved. The communications strategy should be a sustained one, starting early and continuing during and after the fare changes. As an example for public transport, in 2010, Singapore began transitioning from non- integrated bus and rail fares to an integrated distance-based system. The information campaigns that accompanied the adoption of the new system were considered essential to its successful implementation. The campaign included radio broadcasts, road shows at bus interchanges, advertisements in newspapers, posters and brochures (Lipscombe, 2016). The campaign helped people to understand the new fare structure, and increased public acceptance. Adopt an integrated tariff system and improve co-ordination between Public Transport Centres A common ticketing scheme covering all modes of public transport (train, urban transport, rural bus lines) would yield significant benefits for both urban and rural users. A key strategy to encourage the use of public transport is to ensure the ticketing system is attractive and easy to understand for all users. This includes ensuring that the pricing system is coherent and simple, with a reasonable number of tickets that takes users' needs into account. Adopting integrated ticketing and tariff policies that make tickets valid for all public transport modes across a whole region is the preferred means of achieving these outcomes. (Civitas, 2020) Progress is already being made toward the implementation of this reform, with the Ministry of Economic Affairs and the city of Tallinn discussing the creation of an integrated public transport ticketing system. Implementation is planned to fall under the responsibility of the Tallinn Region Mobility Council, which was created pursuant to the memorandum of co-operation signed by the Minister of Economic Affairs and Infrastructure and the Mayor of Tallinn in October 2019. The council will also be responsible for establishing the principles for future mobility planning in the urban area. A simple and user-friendly integrated ticketing system is likely to be most successful. Adopting standard architecture (such as the Integrated Transport Smartcard Organisation) for the introduction of smart card systems can significantly reduce both cost and implementation times, while also greatly reducing delivery THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 77 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS risks. A further key to success is obtaining early agreement among operators on the division of ticket income. This can be particularly challenging if the ticketing system covers both urban and regional areas. (Civitas, 2020) The Mobility Council provides a sound institutional architecture to support the implementation of integrated ticketing. The successful implementation of this reform in the Tallinn region can be expected to provide a sound basis for the adoption of integrated ticketing across the other regions of Estonia over time. Improve concession design to run the system more efficiently Efficient procurement of services yields better cost control. Competitive tendering for bus services is well established in most regions, but changes to the design of the concession system could significantly improve service quality and value for money. A key step would be to estimate carefully the price at which service should be provided before launching the tender process in order to provide appropriate price signals for operators. Currently, operators provide services under gross costs contracts, which stipulate that the operator be paid a fixed sum for running a service for a set period, regardless of patronage. Under such contracts, operators have little incentive to perform well, as they do not receive benefits from increasing patronage. Estonia should consider introducing positive quality incentives in the form of bonuses to encourage better performance from operators. These would come in addition to the penalties for not meeting minimum performance requirements, which are currently set out in the contracts. Examples of the successful use of this mechanism include Oslo-Akershus and London (Transport for London). These quality incentives could be based on different parameters: waiting time for high-frequency routes, punctuality for low-frequency services, wait time, cleanness of vehicles and overall user satisfaction. Transport for London has a well- elaborated and efficient system of penalties and bonuses (TfL, n.d.1). Improving monitoring practice could also be a way to ensure that operators meet quality requirements. Currently, PTAs monitor operators’ performance, while the Road Administration conducts regular checks on the mechanical conditions of the vehicles used. Entities organising public transport should also consider conducting “mystery shopping” survey techniques – wherein independent contractors mirror consumer behaviour - to objectively monitor driver and vehicle quality. To ensure that operators comply with the conditions set out in the contract and that they are reporting mileage correctly, it is also important to undertake regular contract compliance audits. Obliging operators to report data on any accidents that occur while a bus is in service is also essential for monitoring service safety. Focus on improving existing rail services Estonia should focus on the reconstruction of existing rail infrastructure and increasing the frequency of trains between larger Estonian towns and cities (Tallinn, Tartu, Pärnu and Narva). Increasing travel speed requires eliminating level crossings and investing in existing infrastructure and signalling systems. In particular, some points in the network near Tallinn constrain capacity. Addressing this could allow operators to offer express commuter trains in addition to the current fleet. Another important investment is acquiring additional rolling stock in order to increase the service offer and the level of comfort for intercity trips, thus better competing with coach services that offer a high level of comfort. Electrification of high-demand lines will significantly reduce CO2 emissions, noise and fuel costs while increasing train speed. Other measures, such as planning new developments close to railway stations and improving inter-modality, should also be adopted as part of a broad service improvement strategy. 78 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Conduct additional assessments to determine the economic feasibility of regional stops along Rail Baltica and integration with local transport services Estonia should undertake further detailed analysis of the expected benefits and costs of including some or all of these stations in the scope of the Rail Baltica project. This should include consideration of the relative merits of this investment compared with alternative investments in existing rail lines. Additional assessment should include: origin-destination matrixes, mode choice models, land-use planning and co-ordinated integration with other modes. It should also consider the likely extent to which real-estate development near the stations will have enough scale to generate demand for their services. In addition, it will be important to assess the feasibility of establishing interfaces between Rail Baltica and the existing network. Reform urban parking policy Parking tariffs should vary according to the availability of public transport, with higher prices and shorter maximum stays in well-served areas. Efficient parking tariffs prevent capacity saturation and cruising, while ensuring high occupancy rates. Achieving such rates requires dynamic pricing, with tariffs varying over space and time using information on occupancy in surrounding areas. Cities should avoid discounts for long-term parking: Litman (2018) recommends setting daily rates at least six times the hourly rates, and monthly rates at least 20 times daily rates. Revenues should be used, at least partly, to improve and promote alternatives, as such links can be expected to increase public support for the policy reforms and contribute to modal shift. Vulnerable groups should be compensated through targeted complementary measures. Exemptions for employer- paid parking from employees’ taxable income should be eliminated to remove incentives for commuting by car. Another way to make parking costs more visible and discourage commuting by car is to encourage employers who rent parking spaces for their employees to offer them parking cash-outs instead – i.e. the cash equivalent of the parking subsidy. Parking reform should also extend to the planning system. In many jurisdictions, developers are required to provide minimum numbers of parking spaces. However, such requirements are at odds with both inclusion and environmental sustainability objectives. Minimum parking space regulations can lead to excessive land use (Brueckner and Franco, 2017), drive up the cost of housing – since they add costs for developers (Litman, 2020) – and also incentivise car use. Thus, establishing maximum parking space requirements, rather than minimum ones, should be a preferred approach, as they will tend to support the creation of developments that are sustainable and equitable. Tallinn is already moving towards abolishing minimum parking requirements, as outlined in SUMP (2019). This practice needs to be applied in all urban areas across Estonia. Reallocate road space and develop cycling and walking infrastructure Decisions regarding the design and use of the city’s limited public street space should prioritise space following a “pedestrian first” hierarchy of users. This means that street use should be ranked in the following order: pedestrians, cyclists, transit users, freight transporters, taxi drivers and private-vehicle drivers (ITDP, 2018). The reallocation of road space according to this hierarchy, along with investment in more and better infrastructure for these modes, is central to changing their relative competitiveness with the car, in the key dimensions of comfort, safety and journey time. Enhancing walking and cycling conditions is also essential and recent developments in Paris provide a relevant example. Paris has been implementing its “Paris Express Bike Network” plan since 2014 and has re-allocated a large proportion of its road and parking space to more sustainable uses. Since 2014, the city THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 79 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS has expanded its cycling infrastructure by 43%, achieving a total of 1 000 km of bike lanes in 2020. Many cycling lanes are physically separated from motorised traffic, improving convenience and safety for cyclists. Lisbon has been extremely successful in improving walking conditions. The city adopted a Pedestrian Accessibility Plan to address the poor quality of pedestrian crossings and footpaths, which represented a significant barrier for senior citizens to access various types of services. The plan incorporated a diagnosis of the situation, identified opportunities for change, included general guidelines (for day-to-day decisions) and listed 100 actions to be taken by the end of 2017. To support this financially, the city council made a simple decision: every year, 3% of the budget for public works would be invested in pedestrian accessibility (ITF, 2019). Integrate land-use and transport planning Land-use planning should give priority to locations with good public transport networks when determining where to locate new residential and office developments. This will improve the efficiency of existing public transport and help reduce car dependency. Accessibility indicators should be used to help identify locations suitable for new developments. One of the best-known examples is the Public Transport Accessibility Level (PTAL) Indicator used by Transport for London (TfL) (TfL, n.d.2). PTAL ratings reflect how close a location is to a public transport stop. PTAL is used across London to provide clear guidance on appropriate ranges of density for future development: the better the public transport access, the higher the density level at which the area is encouraged to be developed. The use of value-capture mechanisms and development fees should be investigated as a means of financing transport infrastructure for newly developed areas. The United Kingdom, for instance, has a system that requires developers to pay for the necessary transport-related infrastructure improvements. The amount of the levy is determined through negotiations with local authorities and based in part on an assessment of how a new development is going to affect the existing public transport and road networks. A second approach involves levying existing businesses that will benefit from a major infrastructure project to wholly or partially fund its construction. This approach is also used in the United Kingdom. For example, Transport for London raised GBP 4.1 billion of the GBP 14.5 billion cost of the Crossrail project, a major expansion of the London Underground, through Business Rate Supplements, a levy applied to existing commercial developments (Mayor of London, n.d.). 2.6. Rail freight and infrastructure This section examines how rail freight operations and infrastructure management function in Estonia. The analysis focuses on the current state and recent evolution of the rail sector, plus existing objectives and plans moving forward. The market structure and institutional set-up are also addressed in this context. Core challenges the sector faces are identified, followed by several recommendations. Estonian railways are going through a major transition that involves changes in the origins of demand, the types of commodities being moved and the railway system itself. Rail Baltica, a sizable project, is the largest ongoing transportation and infrastructure-related project in Estonia. It has far-reaching implications beyond rail freight operations and infrastructure management. Thus it is also addressed in other sections of the report. Rail passenger services will mostly be covered in Section 2.5. Reforms in other sectors that will condition rail freight activity will be mentioned here (e.g. road freight, ports or procurement), but reviewed more in-depth in their respective sections. 80 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Key issues The characteristics of Estonian railways make them different from other EU rail systems. Railways are mostly focused on freight services, with trains much longer and heavier than in the rest of Europe, and run on broad gauge track. Rail has a considerably higher modal share of freight than other European countries (see Table 2). These are features they have in common with the other Baltic States. The railway system was vertically integrated and profitable until recently, with the cost of maintaining and renewing infrastructure fully covered. Estonian ports, namely Muuga, acted as a gateway to Russia, which is still the main origin and destination of rail freight traffic. Key characteristics of the rail system, namely gauge, infrastructure, rolling stock and their respective technical standards are shared with other countries of the former Soviet Union. Hence, this region has been the natural market for Estonian freight rail, both for transport activity and rolling stock maintenance, renewals or rental. Table 2. Key rail freight indicators, comparison with other EU countries Countries Rail modal share Average load (% of tkm 2018 data) (tkm/train km 2017 data) European Union - 28 countries 17.3 - Bulgaria 18.5 357 Czech Republic 26.9 502 Denmark 11.5 713 Germany 17.8 417 Estonia 44.4 1508 France 10.5 432 Croatia 20.1 549 Italy 13.6 484 Latvia 74 1862 Lithuania 66.7 1721 Hungary 32.4 - Netherlands 5.9 824 Austria 31.8 527 Poland 23.9 769 Romania 30.2 909 Slovenia 35.5 554 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 81 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Slovakia 32.9 684 Finland 27.3 720 Sweden 30.2 659 Norway 15.2 511 Switzerland 34.7 416 Source: adapted from Eurostat (2019). This railway model has been under stress for the past decade (see Figure 7). Political decisions have substantially reduced the volume of Russian traffic, so that from 2006 to 2018 Estonia saw the sharpest fall in activity (tkm) of any EU country, with a reduction in volume of three quarters. Part of this traffic was diverted to other Baltic countries, but Russia is also developing its own Port gateways. Moreover, EU regulation and policies are largely incompatible with the former Estonian model of a profit maximising vertically integrated railway oriented towards Russian cargos. The EU seeks a liberalised, open access, common European (EU) rail market. Infrastructure managers are required by EU legislation to be financially sound, but most do not seek profit, pursuing broader objectives of economic efficiency. This reflects the priority accorded passenger traffic across the European Union, whilst fostering the potential of rail to carry freight sustainably, making it a key element in the European Green Deal. Figure 7. Rail freight activity trends in Estonia, 2007-18 Source: Adapted from Eurostat (2018). The transition from East-West movement of bulk commodities to North-South intermodal traffic North and South rail flows between Estonia and other EU countries (except the other Baltic States) do not exist. Freight movements to and from Europe are carried by truck or sea (see Figure 8). With this starting point, the development of North-South intermodal traffic strongly depends on flows to and from Finland, and intra-Baltic co-operation and co-ordination, which has been weak. Traditionally, Estonia has competed with Latvia and Lithuania for East-West traffic. 82 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS In consequence, cross-border hurdles between Baltic countries cannot be explained by technical differences alone (though these also exist, namely the signalling system and maximum axle loads). Competing economic interests are an important cause. Furthermore, gauge and other differences between the current rail system in the Baltics and Central Europe represent a major challenge to fostering rail connections between these two regions, hence the Rail Baltica project. Figure 8. International freight exchange relationship by country for Estonian rail and road sectors, 2018 International rail (tonnes) International road (tonnes) Ukraine Kazakhstan Latvia 1% Italy Netherlands 1% 3% 3% Poland 3% 4% Lithuania 7% Finland Lithuania 25% 7% Germany Belarus 7% 20% Sweden 8% Russian Russian Federation Federation 68% Other 16% countries 11% Latvia 16% Source: Adapted from Statistics Estonia (2019). Countries of the Commonwealth of Independent States (CIS) will remain an important market for freight transport and related services for Estonia, even if volumes never return to former levels achieved prior to 2007 (Figure 7). The drastic drop in traffic since 2007 was partially offset by the development of the wagon rental and renewal business serving Russian customers. Even after Rail Baltica is completed, most of the network and equipment in Estonia, and the other Baltic countries, will remain geared towards this region. Given Estonia’s geography, potential flows to and from the CIS region will continue to be relevant, including as a feeder to the North-South European connection. This will be the case for traditional connections to Central Asian countries and the Black Sea and also for new traffic from the Far East related to the New Silk Road. Rail charging policy has not yet adapted to the new market conditions All rail infrastructure management in Estonia was privately owned and managed accordingly, under a profitable, vertically integrated railway until recently. The network became public again in 2007. In 2020, a small part of the public open-access network is privately owned. Separately, about half of the tonnes moved by rail are on a non-public access line owned by Enefit Kaevandused railways, a subsidiary of Eesti Energia that produces shale oil in Estonia for electricity production at two domestic power stations. The state-owned infrastructure manager Estonian Railways (EVR) has balanced accounts, with one of the lower state subsidy levels in the European Union (DG MOVE, 2019a) and amongst the highest average access charges for freight (see Figure 9). Access and other infrastructure service charges account for a higher share of Estonian operator costs (for both freight and passengers) than in most EU countries. This THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 83 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS high average reflects the predominant, if reduced, share of heavy haul traffic. Whereas infrastructure costs are 18% of freight rail undertakings revenues in Germany (Bundesnetzagentur, 2018), they range between 30% and 40% in Estonia. In Germany, passenger fares generate a much larger share of revenues than in Estonia. Infrastructure cost recovery levels overall are similar between the two countries. Figure 9. Rail Freight access charges by European Union country, 2016 20 18 16 EUR per train-kilometre (average) 14 12 10 8 6 4 2 0 Access charges freight (including mark-ups) Source: Adapted from the European Commission Rail Market Monitoring Report (DG MOVE, 2019a). Estonia differentiates charges among different commodity types. For example, domestic or EU container trains pay a mark-up of 0.57 EUR on top of short-run marginal costs, whereas other goods trains pay a mark-up of up to 10.83 EUR. Determining whether the access charging policy could be optimised is not possible without a full rail-pricing review. In addition, the way in which access charging is executed matters. Stakeholders complain that the terms and conditions to supply new routes or services are not sufficiently standardised or predictable. Ad-hoc negotiations, despite the published charges, would certainly be counterproductive to attracting more container traffic. Disparity between available rail network capacity and future requirements The drastic drop in rail (and road) traffic has led to overcapacity in the system, but adjustments to the rail network and rolling stock are needed to meet the emergence of new routes, commodities and strengthening of passenger services. The European Commission country review (European Commission, 2019) and transport current issues report (DG MOVE, 2019b) underline the lack of development of the Trans-European Transport network and overall transport infrastructure gaps. Furthermore, infrastructure is Estonia’s lowest-scoring sub-indicator in the World Bank Logistic Performance Index (LPI). 84 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The business, operational, institutional and local components of the Rail Baltica project are important The models of governance and infrastructure management will be crucial to Rail Baltica’s success once operations start. These models will affect the design and provision of numerous elements of the project, including maintenance services and respective depots, traffic control systems and command centres, slot allocation and seamless rail movements across the three Baltic countries. A clearer definition on the number and characteristics of freight terminals associated with this project, besides the major terminal in Muuga Port, is also missing, though several feasibility studies have been already concluded on other options (e.g.Parnu or Soodevahe Dry Port). Decisions on operations and rail services provision can have an important impact on the number, characteristics and location of maintenance facilities. Maintenance facilities are already planned near Tallinn and in Parnu, however, an overall pan-Baltic plan for infrastructure maintenance facilities is lacking. Rolling stock acquisition, or procurement of services and materials for the management and maintenance of Rail Baltica, is another area in which crucial decisions are yet to be made. This is an important milestone, as the costs associated with the rolling stock are significant (RB et al., 2018) and could affect RB’s financial sustainability and overall viability. Co-operation between all the countries involved in Rail Baltica, the three Baltic nations, but also Finland and Poland, will be critical for its success in both construction and operation Achieving seamless rail traffic to Central Europe has more barriers than the gauge difference. Poland has a different signalling and traffic control system, electrification system and train length limits than Lithuania. Investments required to foster rail freight and overcome these other barriers will go on after the main corridor along the Baltics is completed. Minimising cross-border problems will require close alignment of the infrastructure managers on capacity allocation, plus data exchange between them and with rail operators and terminal managers. Such a vast infrastructure project can be a lever to foster this alignment, but all stakeholders, countries and railway companies must be involved in this effort. Infrastructure per se is not enough. The strategic importance of this project goes beyond its balance sheet. It will also generate greater European integration, strengthening of economic, social and cultural exchanges between the Baltic countries, shared commitment to be the first climate-neutral continent by 2050, and commercial, technical and operational alignment of railway systems in Europe. It will integrate a key sector of the economy in the European common market. These are long-term ambitions that constitute the backdrop for Rail Baltica. Estonia’s greenhouse gas emissions are among the highest per capita in Europe The transport system is a relatively minor contributor to the high level of Estonian GHG emissions (see Figure 10), accounting for only 11.7% of the total. However, the European Commission concluded, in its 2019 country report, that “Estonia’s transport system remains environmentally unfriendly”, due to its fast growth and relatively high level of emissions per unit of GDP. Estonia is a transit country for trucks moving from Finland to other destinations in Europe. More than half a million trucks and trailers passed through Estonian Ports in 2018 on route to and from foreign countries, a number that has been growing since then. Moving part of these North-South freight flows from road to rail would help to reduce the transport system’s contribution to GHG emissions. In addition, only 11% of the rail network is electrified, the lowest figure in the European Union ahead of only Lithuania and Ireland. Increased electrification of the rail network could also contribute significantly to this outcome. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 85 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Figure 10. Greenhouse gas emissions per capita, 2017 Source: Adapted from Eurostat and EEA (2019). Avenues for reform Adopt a joint governance model for Rail Baltica infrastructure management Having common operating rules and employing the same language across Rail Baltica will be important to reduce cross-border friction and optimise operations in this corridor, taking maximum advantage of the possibilities this new infrastructure offers. Similarly, centralising traffic management and operations control will facilitate the seamless movement of trains on the corridor and avoid redundancies. The same applies to infrastructure maintenance and associated equipment and depots. Local teams and satellite centres will still be needed for these tasks, but greater integration and economies of scale can be achieved if there is a common governance framework. Other aspects that require strict co-ordination are the allocation of train slots, or line capacity, and infrastructure charging principles. This will increase the commercial attractiveness of the infrastructure offer and ease operational requirements. The international consortium of government agencies that constitutes Rail Baltica should also assess and develop potential freight (and passenger) markets to make use of the infrastructure when it is built. The required co-ordination in respect of the above issues will be most readily be achieved via the creation of a single management body representing Rail Baltica, which operates across all the Baltic countries. Should this prove infeasible in practice, it will be imperative to establish and maintain robust co-ordination arrangements that will enable key issues to be addressed effectively. Foster co-operation and cross-border rail freight traffic before and beyond Rail Baltica The “Amber train” project of an intermodal freight train from Lithuania to Estonia is one example. Setting up these types of services before Rail Baltica is implemented can provide valuable experience in running cross-border services and promote co-operation between infrastructure managers (IMs), operators and other rail/logistics actors in the Baltic States. This service can be a test for establishing common rules, identifying bottlenecks for cross border traffic and fostering the market for intermodal rail traffic across the Baltic States. Such initiatives could extend to include developing cross border traffic with Poland, which is currently non-existent from or to Estonia. 86 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Existing cross-border barriers between Estonia and Latvia owe more to a lack of data exchange and operational co-ordination than technical differences. Trains moving between Latvia and Estonia spend between two and seven hours at the border, including time to change locomotives (around 1 hour 20 minutes), shunting wagons (if wagons are going to different destinations) and on paperwork. Information on the timing of incoming cross border trains is incomplete and unreliable in many instances, implying added uncertainty and allocation of resources to deal with these manoeuvres including personnel and tracks in the stations. Changing this requires more of a cultural, managerial and business model shift, than assuring perfect technical interoperability between the rail networks per se. Closely involve Poland and Finland in Rail Baltica’s deployment and operations to ensure seamless border interfaces The interfaces between Rail Baltica and both Finland and Poland, from an infrastructure, operational and service perspective are critical to attract demand and ensure the competitiveness of the project. The Rail Baltica Task Force already steers and co-ordinates between the ministries of Estonia, Latvia, Lithuania, Poland and Finland regarding the project implementation (European Commission, 2018). Furthermore, Finland and Poland have been observers on the RB Rail AS governance structure. But co-ordination is also required once the main corridor is operational. Most freight traffic on Rail Baltica will be transit, i.e. shipments will not originate or finish in Estonia – but pass through (Ernst & Young, 2017). The connection between Finland and Estonia will play a major role with 29% of freight movements (tkm) on Rail Baltica coming from or going to Finland. Measured in tonnes, the most important flows will be from CIS countries to central Europe (37.8% of the total). The rail freight corridor North Sea-Baltic provides a co-ordination platform that should be used to the fullest to strengthen co-operation between IMs in the current context on core issues such as capacity allocation, deployment of interoperable systems and infrastructure development (CORRIDOR, 2016; Council of the European Union, 2010). Leverage Estonia’s position as the Rail Baltica line terminal to enhance growth opportunities in rolling stock rental and associated services For Estonia to become a main location for rolling stock related services, additional clarity on the business model of Rail Baltica, related operations and rail services is required. For example, will operations be undertaken mostly by a joint venture that has its own depots, or will maintenance and other services be supplied by a third party to different operators? The market structure of Rail Baltica will necessarily affect how these type of services are offered and for companies to prepare they require a clearer picture of how this market will look. Strengthen intermodal rail operations and the development of dry ports and intermodal terminals for the rest of the network Intermodal and container transport accounts for 3% of total rail freight activity volume in Estonia. But Intermodal, or container, transport has been growing while other cargo has been decreasing (see Figure 11). In addition, worldwide demand for rail transport of some bulk commodities traditionally transported by rail (e.g. coal and other fossil fuels) is declining. In contrast, there is a continuing trend towards increased containerisation, along with the employment of other modular packaging systems. The future of freight rail and its contribution to a carbon-neutral economy will largely be determined by how well it can adapt and capture part of the intermodal market. Improving connections within the ports and from the ports to the hinterland is critical to foster this traffic. The creation and development of intermodal terminals, both in the ports, but especially inland is essential THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 87 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS to be able to accommodate this type of transport. Until 2018 the domestic transport of containers by rail was almost non-existent in Estonia, but since then it has increased. Given the country’s geography and scale this will always be a limited market, but there is room for growth. Such infrastructure is relatively low cost in general and can be deployed in phases. It is generally developed by the ports themselves, railway operators, logistics companies or as joint ventures. One example is the ongoing project of Operail to develop a dry port in Tartu (which would replace the current terminal in the city centre), while there are also numerous proposals for private terminals associated with Rail Baltica. The latter will increase access to this corridor for local and national actors. They are a requirement if value- adding activities are to take place associated with the transit traffic that is estimated to constitute the majority of Rail Baltica freight movements. The main role of the government should be to deploy these terminals by co-ordinating the response of the multiple public agencies involved in their approval and easing administrative hurdles, rather than the provision of direct financial support. Figure 11. Percentage change in tonnes moved by rail, containers vs all goods 400% 350% 300% 250% 200% Container 150% All goods 100% 50% 0% 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 Note: Goods moved in the public network. Source: Adapted from Statistics Estonia (2019). Execute periodic reviews of rail infrastructure charges for consistency with strategic policy goals Estonia historically fully covered the costs of the railway system from freight tariffs. The relatively high- value bulk freight from Russia, carried efficiently on long heavy trains, generated the majority of revenues. The traffic mix in Estonia has changed but carriage of bulk products continues to enable a high-level cost coverage, currently 70% (90% in 2016). The figure now is similar to levels in Germany or France where, in contrast, high-speed passenger services generate the bulk of revenue. The structure of charges for infrastructure use was revised in 2017 to increase differentiation and lower charges in some markets subject to strong competition from road haulage, including domestic containers. Many stakeholders would like to see further development in this direction and eliminate some of the differences. Care must be taken simultaneously to maintain the integrity of the rail infrastructure balance sheet (in line with recommendations to make funding for roads less dependent on the general budget). To inform decisions on further reform of infrastructure charges, price elasticities should be estimated for the traffic carried and the traffic government aims to attract to rail from road haulage. The importance of price versus other 88 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS characteristics of transport by road and rail should also be evaluated. Subsidies would be required to implement policy if this analysis suggests that the modal shift targeted by the government would require train operators to charge rates below the short-run marginal costs of using the infrastructure. It would be more transparent and less risky to provide any such subsidy to train operators rather than through an annual budget settlement with the infrastructure manager. The same logic applies to passenger services. Establish a single Infrastructure Manager for the open-access network, to facilitate integrated system management and reduce redundancies and transaction costs for the operators and taxpayers There are two IMs in Estonia with responsibility for different parts of the public-open access network due to historical developments in the sector from the 1990s onwards. Most of the network (87%) is managed by the state-owned Estonian Railways (EE), but the remaining 13% is managed by the private Edelaraudtee (Southwestern railway). Transitioning to a single IM would simplify the system and benefit its overall performance. Integrate rail planning into the broader transport planning to maximise the efficiency and effectiveness of the transport system Rail is a system with multiple components and different service types with disparate needs and characteristics. An integrated rail strategy must take into account multiple fields: infrastructure, rolling stock, operations and interfaces with other sectors and modes. While the Ministry of Economic Affairs and Communications currently includes a railways division, its remit is limited. For example, it is not directly involved in the Rail Baltica project. Section 2.1 Institutional Structure recommends that an enhanced Strategic Policy Division, incorporating a Technical Resource Centre should be established within the Ministry. Care should be taken to ensure that this division has the capacity to formulate integrated, strategic policy for the rail sector, in co-operation with the rail division. Modernise the existing rail infrastructure to achieve better national and regional connectivity A joint vision of Rail Baltica (RB) and the modernisation of the existing network can avoid redundancies, maximising the benefits of both these investments and the associated public spending. Rail Baltica was deliberately designed not to go through population centres. Its goal is to qualitatively enhance intra-Baltic connectivity and the integration of the Baltic States with the rest of Europe. There is a fundamental contradiction between this original objective and currently proposed plans to repurpose it to offer regional services. Upgrading the existing network that runs through the centre of cities and towns is the most effective way to improve regional connectivity, accessibility and cohesion. Such plans exist and include interventions such as improving the signalling system, removing level crossings, duplicating lines at congested choke points, line electrification and acquisition of new rolling stock. All of these can contribute to increasing the energy efficiency, speeds, comfort and frequency of rail services throughout Estonia. These improvements to the service levels are required if rail is to increase its modal share and contribute to the goal of achieving a more sustainable transport system. Adding one or two additional stations to Rail Baltica (e.g. in Rapla) would allow for a direct interface between this new corridor and existing networks; generating synergies between them. Consistency between strategic goals and the instruments designed to achieve them should be maintained. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 89 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS 2.7. Road freight regulation This section contains an analysis of the Estonian road freight transport sector. The aim of findings here is to support the Estonian government with the preparation of a new transport and mobility plan. The analysis was supported by input from interviews with representatives of the Ministry of Economic Affairs and Communication and associations of transport firms, shippers and freight forwarders, and a stakeholder workshop. The study focused on four areas – the regulation of the road freight sector and future developments, road freight transport taxation and charges, the potential for the introduction of high-capacity vehicles and how road freight measures can improve road asset management. Key issues An efficient road freight transport sector is an essential driver of economic development for Estonia. Its efficiency is an important issue for the development of transport policies. Eurostat figures indicate that in 2017 road freight transport accounted for 77% of the total inland freight transport in the European Union. In Estonia, the sector accounted for almost 58% of total domestic freight transport, demonstrating the important role it plays in the Estonian economy. External costs of road freight transport in Estonia are imposed on the community at large as they are not fully covered by road freight taxation. Against this baseline, the main challenges for road freight transport policy revolve around the overall efficiency of the road freight transport sector, road freight transport taxation and the degree of coverage of infrastructure and external costs. Light vehicles carry an increasing share of the road freight A licence is needed for the carriage of goods for hire and reward in Estonia with vehicles exceeding a permissible gross laden mass of 3.5 tonnes. Regulations on access to the profession of road transport operator apply to these, but not to vehicles below this gross weight. Since 2012 no distinction has been made between domestic and international transport drivers. Therefore, the 3 500 tonne limit applies for both domestic and international transport, though EU regulations permit lower limits for national transport. Eurostat statistics do not give enough information to assess the development of the share in total road freight transport of vehicles with a gross weight of less than 3.5 tonnes. However, the road freight transport association Eesti Rahvusvaheliste Autovedajate Assotsiatsioon (ERAA) indicates that this share is rising. This is in line with developments in other EU countries. The new EU Mobility Package (European Parliament, 2020), not yet approved by the European Parliament and the European Council, considers this rise in lighter vehicles to ensure a level playing field between operators using different vehicles. Rules on access to the European road haulage market, as well as driving and rest-time rules, will be extended to cover vans used in international transport (light commercial vehicles of over 2.5 tonnes), with a transition period of 21 months for market supervision, and until the middle of 2026 for tachograph and rest‑time rules. Member states are still allowed to set different weight levels for national transport. The competitive position of Estonian road freight transport companies is under pressure The overall market share in road freight transport to and from Estonia is only 43%, according to Eurostat statistics. Its main competitors are Latvian, Lithuanian and Polish firms. The ERAA confirms that Estonia’s relatively-high fuel tax and regulatory restrictions on using less-expensive drivers from other countries are 90 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS important factors that lower its competitive position. Concerns were also raised about an allegedly limited ability on the part of Estonian authorities to enforce compliant behaviour with respect to foreign firms. Estonian officials, however, cast doubt on a number of these assertions. They note, for example, that Estonian firms operating internationally can readily buy cheaper fuel outside Estonia. They also note that a majority of speeding and other fines levied on drivers from foreign firms are paid without enforcement action being taken. Conversely, they suggest that lower rates of tax compliance among firms in competing countries may be a more significant source of competitive advantage. The structure of the Estonian road freight industry may also be a factor limiting its competitiveness. In particular, it has a relatively large number of medium-sized firms, in a context in which competing industries have moved toward a combination of larger firms which can reap scale economies and small firms that are highly flexible and able to operate in niche markets. The new EU Mobility Package (European Parliament, 2020) may present a problem for Estonian transport firms by reducing the efficiency of their operations and increasing costs. The new Mobility Package further restricts cabotage, sets additional rules on the payment of drivers and requires drivers and vehicles to return to their home country after a certain period of operation in other countries. Driver shortages will become a major problem Driver shortage is becoming a serious problem in Estonia, as in most other EU countries. ERAA indicates that a large proportion of the current Estonian drivers is over 50 years of age. The sector has difficulties attracting young people to the occupation, and Estonian law makes hiring drivers from other countries relatively costly. Initiatives to train young people as professional drivers run the risk that such drivers go abroad after training. The current road freight transport taxation system is over-reliant on fuel excise duty A study carried out by CE Delft (2019a) for the European Commission that uses 2016 data suggests that revenues from road freight transport in Estonia represented around 20% of the total direct and indirect cost caused by road freight (i.e. estimated road infrastructure cost and estimated external costs of crashes and congestion and the environmental costs of air pollutant emissions, greenhouse gas emissions and noise (Figure 12). This is significantly below the EU average of 27% and the fifth-lowest among EU countries. Nevertheless, fuel taxes raised more than enough revenue to cover road expenditure, approximately double average expenditure on a system that is in stable condition. Fuel tax levels were among the top ten highest in the European Union so the steering effect of the road taxation system for mitigation of CO2 emissions is well above average. At the beginning of 2020 excise duty on diesel corresponded to a shadow price of EUR 184 per tonne of CO2 (Figure 13 and Figure 14).33 Diesel excise duty was cut by a quarter on 1 May 2020 as part of Covid-19 response measures, corresponding to a shadow price of EUR 139 per tonne of CO2. This temporary measure is scheduled to be in place for two years and puts Estonia among the ten lowest rates of diesel excise duty in the European Union. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 91 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Figure 12. Overall revenue-to-cost ratio for road freight transport in the European Union, Norway, Switzerland, the United States, Canada and Japan in 2016 Note: Next to the EU28 acronyms, CA-AB stands for Canadian province Alberta, CA-BC for Canadian province British Columbia, US-CA is California in the US, US-MO is Missouri, and JP is Japan. Source: CE Delft (2019a). Data from another study based on the same dataset (CE Delft 2019b) shows that, while average revenues from light commercial vehicles (LCVs) are approximately equal to the EU average, those for heavy goods vehicles (HGVs) were around 25% below average in 2016. Estonia subsequently introduced a time-based user charging system for HGVs. While this implies that the revenues collected from HGVs have increased since these comparisons were made, the size of this impact is limited in practice. Estonia’s vignette system yielded a modest EUR 20 million in 2019. Road user charging schemes in Estonia differ in two additional ways from those most commonly used in other EU countries. First, while Estonia levies an ownership (or circulation) tax, in common with most or all other EU countries, it differs from usual practice in applying the tax only to heavy goods vehicles of over 12 tonnes gross vehicle mass. Second, Estonia relies unusually heavily on fuel tax as an instrument of road user charging. Unlike the two taxes cited above, all road users (other than those with non-fossil fuelled vehicles) pay fuel tax, albeit that diesel is taxed at a preferential rate. The disadvantage of the Estonian reliance on fuel tax is that foreign and where possible domestic transport operators using the Estonian road network are able to avoid paying the tax by refuelling at lower prices in adjacent countries and thus hardly contribute to the costs of it. These operators in effect only pay for the low-priced vignette. The loss of potential revenue is considerable, thus reducing the contribution of international domestic and foreign hauliers to the costs they impose on the Estonian road network. Fuel tax tourism will be reduced by the temporary excise duty reduction introduced as part of the response to the Covid-19 crisis. It is unclear what the net impact will be on fuel tax revenues. 92 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Figure 13. Fuel excise duties in European Union member states, July 2019 900 Euros per 1 000 litres of road fuel 800 700 600 500 400 Diesel 300 Petrol 200 100 0 United… Slovakia Latvia Poland Spain Sweden Bulgaria Austria Cyprus Romania Greece Germany Finland Croatia Denmark Netherlands France Belgium Lithuania Ireland Hungary Slovenia Malta Portugal Italy Luxembourg Czech Republic Estonia Source: European Environment Agency data - https://www.eea.europa.eu/data-and-maps/indicators/fuel-prices- and-taxes/assessment-4; Ministry of Finance - https://www.rahandusministeerium.ee/en/news/supplementary- budget-includes-lower-excise-duties-and-temporary-suspension-funded-pension. Figure 14. Fuel excise duties in European Union member states, May 2020 900 Euros per 1 000 litres of road fuel 800 700 600 500 Diesel 400 Petrol 300 200 100 0 Spain Slovakia Latvia Sweden Bulgaria Cyprus Poland Romania Finland Greece Croatia Denmark Germany Netherlands Belgium Austria Slovenia France United Kingdom Lithuania Ireland Portugal Italy Luxembourg Hungary Estonia Malta Czech Republic Source: European Environment Agency data - https://www.eea.europa.eu/data-and-maps/indicators/fuel-prices- and-taxes/assessment-4; Ministry of Finance - https://www.rahandusministeerium.ee/en/news/supplementary- budget-includes-lower-excise-duties-and-temporary-suspension-funded-pension. In 2018, the European Parliament voted in favour of new rules on road-use charges in the European Union to guarantee equal treatment of road users and to help member states reach CO2 emission reduction targets in the transport sector (European Parliament, 2018). If the draft regulation is approved, all light and heavy vehicles in the European Union will be charged depending on their actual road use and the THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 93 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS pollution generated. To this end, EU countries using time-based charges (vignettes) will need to switch to distance-based charges (tolls) from 2023 in the case of trucks and buses, and from 2027 for vans (over 2.4 tonnes) and minibuses. This change would provide an opportunity to increase the charging level on HGVs to levels more consistent with the EU average and, similarly, improve overall cost recovery. Longer road freight vehicles are currently not allowed but could contribute to a safer, cleaner and more efficient road freight sector HCVs are freight trucks that are heavier or longer (or both) than vehicles currently permitted on the general road network. Within the European Modular System (EMS) they are typically 25.25 metres long with a gross weight of 50-60 tonnes. These vehicles have been authorised for use in a range of countries in recent years in recognition of their safety, efficiency and environmental benefits (ITF, 2019). Currently, longer vehicles up to 25.25 metres are allowed in countries such as the Netherlands, Finland, Denmark, Sweden, Spain and Germany, but not in Estonia. Authorising HCVs to operate on selected roads could contribute to the overall efficiency of the road freight transport sector in Estonia. Avenues for reform Reform the current transport taxation system Taxation and user charging arrangements for both freight and passengers in Estonia should be reviewed. The overarching objective should be to achieve an efficient level of cost recovery, incentives to reduce environmental costs, an efficient taxation and user charging structure with low administration costs, and an appropriate contribution from users of the network that are registered abroad. In the case of roads specifically, the objective should also be to achieve funding independence of the prospective road company, as laid out in Section 2.1 Institutional Structure. It is recommended that the transport taxation review take into account all transport modes, and both passenger and freight transport. Although the European Commission’s proposals for new rules on road-use charges are still under discussion and may not ultimately require this change, Estonia should explore approaches for moving from a time-based road charging system to a distance-based system. This would be an opportunity to substantially increase revenues from road-use charges, reduce losses due to cross-border fuel tax arbitrage opportunities and make progress with the internalisation of external costs. It would also provide a strong incentive for efficiency through higher load factors and the consolidation of freight logistics. Co-operation with other countries to find the best solutions for the introduction of a distance-based taxation system is necessary. Experiences could be shared with countries that are currently planning to shift from time-based to distance-based systems, such as the Netherlands, where the government has started the programme “Vrachtwagenheffing”.34 Lessons could also be taken from the success of the German Maut, which applies distance charges beyond the motorway network35 and similar charges introduced in other EU states. The move towards distance-based charging is fundamental for long-term strategy. It expands Estonia’s options of how road infrastructure is financed and at the same time safeguards the efficiency of road infrastructure maintenance and delivery through predictable funding. ITF’s recommendations regarding the institutional structure in Estonia (Section 2.1) suggest the Road Administration be transformed into a State-owned company. If the road company were to recover more than 50% of its cost through user charging it would be free to raise finance for investment. Debt would be assigned to its own balance sheet and would not count against the public debt of Estonia for the purposes of the Maastricht criteria. This 94 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS would remove the incentive to pursue expensive public-private partnerships (PPPs) for road investment projects in order to bypass public debt limits. If an increase in the total tax burden on road freight operators is seen as undesirable, there would be a case to offset distance-based charges with a reduction in other taxes. This would achieve funding independence for the road company. The practical instrument to achieve this would be a partial diesel excise tax reimbursement for commercial uses and could be applied to phase-in the tax reform over the short to medium term. The Ministry of Finance could also change the rate of the rebate to adapt to potential fluctuations in revenues. If sufficient funding independence for the road company were not achieved by distance-based charges for road freight alone than an extension to car users should be considered. Develop a policy framework for the introduction of high-capacity vehicles on Estonian roads HCVs have the potential to yield substantial efficiency, safety and environmental benefits. This has been the case in an increasingly wide range of ITF countries, such as Germany, Denmark, and Sweden. However, large parts of the Estonian road network might not be suitable for use by these vehicles, while other facilitative measures may be needed for an effective introduction. This means that an integrated policy framework will need to be developed, including specification of a network of suitable roads. The ITF (2019) report on high-capacity vehicles could be used to guide the process, specifically the section entitled “Package for policy makers: Toolbox and performance metrics”. In addition to advice on how to introduce HCV’s in a balanced way, the Package also includes a discussion on how to estimate the costs and benefits of HCV introduction to help policy makers understand the merits of these vehicles and explain them to politicians and the public. Improve the competitive position of the road freight transport sector and develop initiatives to address the driver shortage The Estonian government should create a more level playing field for competition between Estonian and foreign hauliers in the international freight market. Moving from time-based to distance-based road user charging would be a key initiative in this regard, while a relaxation of restrictions on the recruitment of foreign drivers could also be a significant step. The government should also ensure appropriate enforcement of key regulatory requirements in relation to the operations of foreign hauliers in the country. The Mobility Package discussions held by the European Union (European Parliament, 2020) could be used by the Ministry to discuss the effects that national policies on the recruitment of drivers from other countries have on the relative competitiveness of trucking industries across the European Union and pave the way for EU-wide reforms of these policies. The Estonian government, who is already financing the training of bus drivers and unemployed persons, is encouraged to discuss the shortage of drivers with the sector and stakeholders (shippers, freight forwarders, road freight operators and organisation active in education and training) and assess the available instruments to attract and retain more young people (both men and women) to the occupation. Solutions for the shortage problem could be found in upgrading road-side facilities for truck drivers, acceleration of driving tests and driver medical assessments, measures to close the gap between the age young people finish their secondary education and the age limit for driving heavy trucks, stimulate developments in autonomous vehicles, advanced driver assistance systems and truck platooning, and improving working conditions and promotion campaigns on employment prospects in road transport. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 95 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Include the operation of road freight vehicles under 3.5 tonnes in the transport licensing system The discussions about the upcoming new EU Mobility Package (European Parliament, 2020) could be used to review the current system regulating access to the profession of road transport operator. Given the increasing use of vehicles just below 3.5 tonnes (especially vans), it might be advisable to include such vehicles in the system to have better control of their operations. For instance, transport licenses can be withdrawn in case of repeated serious offences against traffic laws or causing a high number of accidents. The new EU Mobility Package sets a limit of 2.5 tonnes for international transport coming and going through Estonia, but EU member states are allowed to lower the limit for domestic transport. The recommended review, therefore, should assess whether it would be beneficial in terms of a level playing field and/or traffic safety to lower the limit even more for domestic transport Start a sector-wide programme to decarbonise road freight transport and logistics Given the increasing attention for the environment and the recent ambitions presented by the European Commission, a sector-wide programme of decarbonisation is important. The cornerstone would be the adoption of an electronic kilometre charge for heavy vehicles, as outlined in the previous section. Programmes such as in the United Kingdom (Box 2), the Netherlands and Sweden focused on decarbonising transport and logistics might also be an inspiration for Estonia to start a similar initiative. Box 2. Decarbonisation of road freight services in the United Kingdom The United Kingdom government has commissioned an investigation into the possible measures and scenarios to achieve the decarbonisation of its road freight services. Possible measures of example include: • Electrification of road freight vehicles using a decarbonised electricity supply. • Standardisation and sharing of logistics data to accelerate collaboration between organisations, thereby improving logistics efficiency and consequently reducing CO2 emissions. • Telematics-informed driver-training will continue to play an important role in reducing carbon emissions from road freight. • ICT-based solutions such as dynamic-vehicle routing and congestion predication will reduce the negative impact of congestion. • The relaxation of time constraints may go against current trends in service-based competition but have been shown to offer significant efficiency improvements. • Changes to weight and dimension regulations would permit the use of higher-capacity vehicles and increase logistics efficiency. • Despite the widespread adoption of over-cab fairings, aerodynamic improvements continue to offer significant opportunities to improve fuel efficiency. Source: GOfS (2019). 96 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Consider further road freight incentives that can reduce the cost of the maintenance and management of road assets Further measures to lower the costs of infrastructure maintenance are possible than areas of taxation of road freight transport, HCV’s, and decarbonisation. These are more fully worked out in ITF’s (2018) dedicated report on “Policies to Extend the Life of Road Assets”. Examples of such policy measures include:  Base the planning of maintenance of road assets on traffic projections.  Explore opportunities to reduce pavement wear through the tax and regulatory frameworks. This could include stimulating the use of dual tyres and/or multi-axle groups. Incentives to use dual tyres and/or multi-axle groups could include increased mass limits or reduced road user charges.  Use regulatory and financial incentives to encourage transport operators to use vehicle designs and configurations with lower road asset wear characteristics. 2.8. Maritime policy ITF reviewed the current challenges for maritime freight and passenger transport in Estonia, assessed recent reforms in the shipping sector, and considered relevant policies to reduce the environmental impact of shipping in Estonia. This section sets out the conclusions of this analysis. It identifies four key issues and proposes avenues for reform in the Estonian maritime transport context in the areas of ports, maritime policy, ferry transport and the environmental impacts of shipping. Key issues Ports: Towards more transit traffic after a decade of decline? Estonia has 222 inland and seaports, most of which are small craft harbours. The most important ports group by far is the Port of Tallinn, handling 63% of Estonian port cargo and the large majority of ship passengers in Estonia. The Port of Tallinn consists of five different port sites, the largest of which are the Old City Harbour and Muuga Port.36 The Old City Harbour, near the historic centre, is essentially used for passenger ferries and cruise ships, whereas Muuga Port, on the outskirts of the city, handles primarily cargo ships. Estonian ports perform well if average ship turnaround time is taken as an indicator. For containerships, this turnaround time in 2018 was slightly over half a day in Estonian ports, the best score among the Baltic Sea countries. Estonia also has relatively favourable (low) turnaround times for tankers, but scores relatively less well on turnaround times of bulk carriers. Muuga Port has managed to attract one of the leading global terminal operators, HHLA, to operate its container terminal, but this is not unique in the Baltic Sea Area. In Klaipeda, Lithuania, for example, the container carrier MSC operates a terminal. Despite good performance metrics, port volumes in Estonia have dropped from 48 million tonnes in 2006 to 38 million tonnes in 2019, largely driven by the halving of the volume of the Port of Tallinn (Figure 15). The cargo type with the largest decline over that period was liquid bulk. Container volumes in Estonian ports have grown since 2009, from 0.13 million TEUs to 0.24 million TEUs in 2018. The declining port volumes can largely be explained by a drop in Russian transit traffic, for which Muuga Port functioned as THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 97 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS a gateway. Underlying this drop is Russia’s strategy to divert its traffic towards its own newly developed ports, such as Ust-Luga and Primorsk. Figure 15. Cargo volumes in Estonian ports, 2002-18 45 40 35 30 Million metric tonnes Tallinn 25 Sillamäe Pärnu 20 Kunda 15 Vene-Balti Miiduranna 10 5 0 Source: Eurostat (2020). Consequently, Estonian ports are not faced with capacity constraints. Even in the container sector, which has seen growth, there is still enough capacity. For instance, the utilisation rate of the HHLA terminal in Muuga is less than one-third of its planned capacity. Ports, thus, have large spare capacity that could be exploited. Maritime stakeholders expect a slight increase in freight in the coming years, albeit not to previous levels.37 Due to the small internal consumer market and limited exports by sea, the growth potential of Estonian ports is dependent on transit cargo. A return to pre-2006 levels is not projected, considering Russia’s new transit ports. The importance of Estonian ports for the People’s Republic of China’s Belt and Road Initiative currently appears limited, as Russian railways restrict cargo flows towards Baltic states. But alternative transit flows have been explored that could generate new port traffic:  North-South transit cargo from Finland to Tallinn (by ship) and then over land to the Black Sea (Odessa) or the Adriatic Sea (Koper). This might be an attractive option for cargo to Turkey, as it would halve travel times. These flows could potentially bring a few million tonnes of new cargo to the port of Tallinn.  The construction of Rail Baltica, which is expected to be completed in 2027, is assumed to have a strong potential to attract additional cargo flows for the Port of Muuga, which will be connected to Rail Baltica infrastructure through a new rail port. In the meantime, logistics companies have developed a train project connecting the three Baltic States (the Amber train project) that might generate some additional cargo for Estonian ports. 98 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Development of such corridors could indeed help to capture new transit cargo flows. However, the challenge for many ports is to keep this transit traffic. Shipping companies have alternative options for loading and unloading, they have mobile assets and the buying power (in many shipping sub-sectors) to play ports off against each other. When it comes to transit cargo, the Estonian ports have various formidable competitors, such as the port of Klaipeida. A way to capture transit cargo is by the provision of value-added activities in Estonian ports that are not provided elsewhere. This would increase the switching costs for shipping companies. A complication in developing such long-term corridor projects is the simultaneous corporatisation of the Port of Tallinn and the arms-length involvement of the central government. The Port of Tallinn is listed on the stock exchange, which has introduced the need to satisfy shareholders with often short-term objectives. A majority of the shares (67%) is held by the central government, but it does not seem to use this position as leverage to develop a ports strategy focused on the public interest. This public interest includes economic development, environmental sustainability and connectivity. The Estonian government could pursue such public objectives via its ownership or position as a shareholder in various Estonian ports. Shipping: Preferential tax treatment adopted, but unlikely to be effective Estonia counts several ship owners, but their cargo vessels hardly ever fly the Estonian flag or deploy Estonian seafarers. In order to address this, the Estonian government has proposed a shipping support package, adopted by Parliament in 201938, that will come into force on 1 July 2020. This package consists of two measures: the introduction of a shipping-specific tax – the tonnage tax – as an alternative to regular corporate income tax, and a special seafarer labour tax regime. Tonnage tax allows shipping companies to apply for taxation based on the tonnage they operate, instead of being taxed under the normal corporate tax system. Such schemes can reduce the overall level of taxes paid and, as such, are treated as state aid that requires approval from the European Commission. The European Commission approved the Estonian tonnage tax scheme in December 2019. Under seafarer schemes, labour costs (i.e. income tax and social security contributions) for seafarers employed on board vessels flying the flag of the European Union or a European Economic Area (EEA) member state may be partly or entirely reduced. Amendments to the Income Tax Act (Riigi Teataja, 2019) impose new rules for the taxation of wages of seafarers on vessels meeting specific conditions.39 By introducing both schemes in a support package, Estonia hopes to generate incentives for shipping companies to register their vessels, notably cargo vessels, under the Estonian flag. The last large cargo vessel left the Estonian shipping register in 2014. The objective declared by the government is to bring 300 large cargo ships to the Estonian ship register in the next seven years.40 In an explanatory note to the support package, the Estonian Maritime Administration expects to have about 200 ships flying the Estonian flag by 2024. The vessels are expected to bring income to Estonia through the collection of registry fees and tonnage tax. The reform has also been justified by a need to attract and develop maritime know-how in Estonia and to increase seafarer and shore-based maritime employment (legal, management and administrative functions). Attracting Estonian seafarers? It is unclear to which extent the reform will be able to attract Estonian seafarers to work under the Estonian flag, as data on current employment locations and labour conditions do not exist. Compared to Northern European states, such as Norway and Finland, employment conditions under the new scheme do not seem sufficiently advantageous to attract new seafarers or seafarers currently working under different jurisdictions. While the scheme may help attract seafarers working on third-party registered vessels and, while labour conditions become comparatively better for this target group, the new scheme does not THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 99 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS provide employment and social security standards in line with conditions on passenger vessels flying the Estonian flag or in other sectors in Estonia. For example, amendments of the Income and Social Tax Acts (Government of the Republic of Estonia, 2019a) introduce a fixed income tax base on the basis of which social contributions are calculated. Because the fixed tax base (EUR 750) is lower than the gross wage in most cases, contributions are lower and hence reduce seafarers’ pension rights. Workers are usually covered under a solidarity health insurance scheme within up to two months after termination of a work contract, including for Estonian seafarers that might have worked on Estonian-flagged cargo vessels in the past. While this insurance will not be available under the new scheme, seafarers working under the Estonian flag will be given the opportunity to receive health insurance through a voluntary agreement. This voluntary opt-in is seen as complicated and inflexible, allowing only for yearly subscriptions. However, seafarers often switch contracts – and hence flag jurisdictions – multiple times a year, which would usually require subscriptions only for short periods of inactivity. When the employer is not an Estonian resident and the employment contract is concluded elsewhere, there is no obligation to pay social security contributions even if the seafarer is working aboard a vessel flying the Estonian flag, according to the Seafarers’ Employment Act (Government of the Republic of Estonia, 2019b). Reviving the Estonian flag? Fiscal conditions in Estonia are already very favourable. Corporate taxes in Estonia are currently paid only on dividends, but not on corporate income, so the tonnage tax is not likely to be attractive to Estonian owners. Moreover, as Estonian companies currently operate around 50-60 ships, the objective of attracting 200 cargo vessels to fly the Estonian flag is clearly aiming to attract non-Estonian ship-owners. The ITF’s assessment of the Estonian scheme found it to be very competitive compared to other tonnage tax schemes in Europe. For companies that deploy new ships, the Estonian scheme could be considered as one of the most attractive of all schemes of EU countries: it provides a reduction of the tonnage tax rate of 50% for vessels that are younger than five years and a 25% reduction for ships between five and ten years of age. Only Malta seems to have a more generous tonnage tax scheme (Figure 16). As these ship- owners are likely to come from EU member states, one could argue that the Estonian tonnage tax scheme encourages tax competition within the European Union, which is what the EU Maritime State Aid Guidelines (European Commission, 2004) aim to avoid. However, use of the Estonian tonnage tax will not necessarily translate into more Estonian-flagged vessels, as cargo vessels can benefit from tonnage tax as long as they fly the flag of an EU or EEA member state. In order to solve this, the Estonian government has initiated the creation of a second registry for bareboat vessels: an electronic registry in line with the concept of e-residency that Estonia applies to the business sector. This second shipping registry is aimed at attracting foreign ship management companies and comes with very limited strings attached: there is no need to relocate commercial or management activities to Estonia, as long as there is a local contact in the form of a maritime lawyer. As these ship-owners are likely to come from EU member states, one could argue that the Estonian tonnage tax scheme encourages tax competition within the European Union, which is what the EU Maritime State Aid Guidelines aim to avoid. The registries of bareboat vessels will be maintained by the Maritime administration. The reform took effect on 1 July 2020. The shipping support package and the shipping registry reform have been framed by shipping industry stakeholders as measures to generate shore-based employment and added value: it would help create a maritime cluster in Estonia. One wonders how this works. Even in countries with the world’s largest 100 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS shipping registries, like Panama, registries only generate very limited economic value-added and cluster effects (ITF, 2019). This is arguably even more the case in Estonia where the second registry would require no actual physical presence of shipping companies. Developing the Estonian onshore maritime sector should nevertheless be a priority to generate employment in the sector. It is recommended that this be pursued through the planning process, with both a strategic development plan for the sector and alignment of local zoning regulations to accommodate investment in value-added activities. Estonia has the potential and assets that could help transform it into a maritime cluster, including advanced shipping companies, maritime institutes and maritime innovation programmes. Figure 16. Tonnage tax due per ship according to the ship’s net tonnage 45 000 40 000 Tonnage tax amount per ship (EUR) 35 000 30 000 25 000 20 000 15 000 10 000 5 000 0 20 000 NT 50 000 NT 100 000 NT Note: values in EUR by category of net tonnage (NT, measure of the internal volume of the ship’s cargo spaces). Source: based on analysis of tonnage tax schemes of European Union member states. Passenger ferries: Sub-optimal service quality due to ferry tender design With 16 permanently inhabited bigger islands and hundreds of small islands in the Baltic Sea, Estonia is dependent on maritime passenger transport. Given otherwise high ticket costs, the state has subsidised and put in place public transport service contracts for ferry connections which connect:  the Estonian mainland with the bigger inhabited islands and small islands of Harju, Lääne and Pärnu counties  the island of Saaremaa with the island of Hiiumaa THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 101 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS  the island of Saaremaa with the small islands located within the administrative boundaries of Saare county. These lines may benefit from central state subsidies and subsidies from the budget of a local authority. If the revenue base of a local authority budget is insufficient to cover support to public regular services, the state covers the deficit of the subsidies to public regular services wholly or partly from the state budget. Public transport by sea to islands provides regular connectivity but only limited incentives for operators to provide better and more efficient services. The maximum tariff per kilometre and the maximum ticket price in public regular services is established by the Ministry for county and long-distance travel. Maximum prices for intra-municipality carriage of passengers by ferry are established by the local municipality. While general satisfaction with island ferry services has increased41, there are issues related to ferry capacity during peak times, notably during the three summer months and on weekends. However, incentives for customers to use ferries outside peak hours or days do not seem strong enough. Island connectivity objectives (access to employment and key services on the mainland) support the case for stable prices for residents and commuters. However, different pricing strategies, such as higher price differentiation between tourists and residents, may reduce pressure on services during peak times and reduce under-utilisation of assets in low-demand periods. In previous calls for tenders, Estonian authorities observed low levels of competition in bidding for public service contracts, mainly related to the small local market42, tender conditions, and regulations and standards that operators are expected to adhere to (e.g. service quality and safety43). In 2011-12, only one company submitted a bid to provide services to the main islands Saaremaa and Hiiumaa. The Port of Tallinn was fully state-owned at that time and created a subsidiary ferry company to bid for these operations. In 2014, the Ministry tendered out the Rohuküla-Heltermaa and Virtsu-Kuivastu ferry lines starting from 1 October 2016. Väinamere Liinid OÜ (100% privately owned) and joint tenderers TS Laevad and OÜ TS Shipping (100% subsidiaries of the Port of Tallinn) participated in the public procurement. A new contract with TS Laevad was signed in 2014, which will expire in October 2026. A reason for limited competition may be the sunk costs faced by operators in an ordinary franchise in which the operators acquire capital equipment and assets at their own risk. In such an ordinary franchise, high asset investments – or sunk costs44 – possibly deter companies from making bids. An operator who is uncertain about the prospects for renewal of the contract or the market value of the assets in case of non- renewal will be reluctant to submit a bid and make such investments if contract periods are short and no favourable treatment of incumbents is foreseen in the following tender process (Hervik and Sunde, 2002). Currently, this applies to the Virtsu-Kuivastu and Rohuküla-Heltermaa lines. The use of state-owned vessels (possibly electric ferries) is being discussed for subsequent contracts. State-owned vessels are already used for public transport services between the mainland and smaller islands. Shipping emissions: Promising projects, but upscaling is warranted The maritime transport sector contributes significantly to air pollution, especially along coastal areas and port cities, exposing the population to adverse health effects. In Estonia, the Old City Harbour of Tallinn has become a significant source of local pollution and greenhouse gas (GHG) emissions, especially with the rise in maritime passenger traffic in Estonian ports, which has more than doubled in the last 15 years. Major air pollutants from shipping activities that can affect human health and the environment include particulate matter (PM), nitrogen oxides (NOx), sulphur oxides (SOx), volatile organic compounds (VOCs) and ozone (O3). With shipping activity expected to rise, these emissions risk increasing as well in the coming years. A significant part of these emissions come from passenger ships, such as ferries and cruise ships 102 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS that are berthed close to urban concentrations. The ITF’s calculations over 2019 show that three-quarters of the shipping emissions within the Port of Tallinn come from ferries and cruise ships. Various national and local measures have been initiated that go beyond international and supra-national measures:  Electric ferries. The ferry company TS Laevad (100% subsidiary of the 67% state-owned Port of Tallinn) has engaged the Estonian shipbuilding company Baltic Workboats AS to rebuild the ferry Tõll, which operates the Virtsu-Kuivastu line, into a hybrid ship. A battery bank will be installed on the vessel to reduce the consumption of diesel fuel and reduce the resulting exhaust gas by replacing fossil fuel with electricity stored in battery banks. TS Laevad expects to replace about 20% of the diesel fuel consumption with electricity.45  Port equipment. The Port of Tallinn will also install shore power systems on five of its piers in the Old City Harbour as part of the first shore power project in Estonia, the aim of which is to supply the vessels that visit the port with shore electricity and thus reduce emissions and noise created by the ships’ engines. By the end of 2020, the port will install automated mooring systems in order to increase the speed and safety of mooring, which is expected to reduce the use of ship fuel and the need for human resources to manually moor the ship.46  Green port due rebates. In January 2019, the Port of Tallinn Group put in place environmentally differentiated port fees.47 The rebate scheme is applied in all Port of Tallinn’s ports (Old City Harbour, Muuga, Paldiski South, Paljassaare and Saaremaa). Rebates are based on the international Environmental Ship Index (ESI)48, which evaluates the amount of air pollution emitted by a ship, the vessel’s energy savings measures, as well as readiness to connect the ship to an onshore power supply. Vessels with an ESI score of 80 and above may apply for a discount of 8% on tonnage fees. For ships with an ESI score between 65 and 79.9, the applicable discount is 3%.49 Additional measures have been announced. New tenders for ferry services will include either the purchase of electric ferries by the state or a requirement for vessels to be zero-emission or electric. The Port of Tallinn announced public procurement for construction of a new state-of-the-art environmentally friendly cruise terminal in the Old City Harbour. It is not clear that these initiatives will be enough. The green port due rebates likely suffer from the same problems that were identified in a 2018 ITF study: not enough focus, not enough coverage and minimal differences between clean and non-clean ships (ITF, 2018). Electrification will only yield environmental benefits if the electricity used is generated sustainably. In 2018, oil shale accounted for 76% of Estonia’s electricity generation (IEA, 2019). Plans to build wind energy parks on the biggest islands could support ferry electrification efforts in Estonia and complement the use of sustainable electricity, but potential issues of grid integration would need to be solved.50 Sustainable electricity can also be purchased through the common energy market. Estonia is part of the integrated electricity market of the Nordic countries, Nord Pool. Avenues for reform Ports: Stimulate value-added activities More value-added activities in port areas could help to attract and keep new transit cargo flows. This could potentially improve the utilisation of port assets, currently underutilised. Such value added could differ per port and cargo type, but could include light assembly, recycling, waste management, painting, repair, THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 103 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS conditioning and other services. Location of value added economic activities in ports could be stimulated via port master plans, zoning and possibly other instruments. A more pro-active role of the national government in port planning would be required to achieve this, via its role as owner or shareholder in various Estonian ports, but also by addressing the lack of integration of land-use and transport planning, highlighted earlier in this report. This more pro-active role could take the form of the development of a national port master plan, including a sector study of the types of value-added activities that could be carried out in or close to ports, which should be translated in national guidance on land-use and zoning in and around port areas. In addition, the State could develop a more proactive role in decisions taken by the Port of Tallinn, notably by leveraging its majority ownership rights. The government should exclude the possibility of ports listed on the stock exchange unless a convincing case could be made that doing so would be best for public interest. Shipping: Develop a comprehensive maritime cluster strategy The shipping registry reform and the state aid package benefit a small number of maritime stakeholders in Estonia, particularly in the supply of legal services. The government should consider developing a maritime cluster strategy that targets value creation across a much larger number of sub-sectors. The cluster strategy should mainly target innovative maritime activities in which Estonia could develop a comparative advantage, e.g. related to maritime innovation and technologies. The creation of a maritime stakeholder platform in Estonia would be the first step to developing a cluster strategy that benefits job growth in the sector. The state aid package for the shipping sector should be evaluated as soon as possible. The scheme will expire in June 2026, but the government should consider withdrawing the scheme much earlier if it is found not to have created added value, or if it negatively impacts the level playing field within Europe. Data collection should start as soon as possible in order to ensure a rigorous evaluation process over the years. Estonia could follow the example of Sweden, where the government agency Trafik Analys provides a yearly evaluation of the effects of Sweden’s subsidies to the shipping sector.51 Passenger ferries: Re-design ferry tenders to improve service quality Dynamic pricing is at the core of achieving a more balanced and efficient use of ferry assets throughout the year. Although currently not allowed by the provisions of the Public Transport Act, the possibility of introducing more efficient pricing strategies should be discussed and considered in order to avoid congestion in peak times and underutilisation of assets during the off-season and during weekdays. One way would be to introduce summer and weekend peak hour surcharges for non-island residents. Conditions for benefitting from residency rebates could become stricter by revising the minimum conditions to count as a resident and close current legal loopholes to benefit from rebates.52 Reducing risks for operators due to high initial capital requirements could be considered in future tenders by making the public purchase of vessels common practice on all routes. The Ministry is considering an operating franchise for its main island routes so that potential bidders would not face the sunk costs of acquiring capital assets, as is the case in some of the current contracts. In that case, provisions for maintenance might be required, as state ownership of vessels might disincentivise operators to properly maintain vessels. Assessment of the need of potential reconfigurations of routes could also be part of future tenders and might help to improve service for passengers. In addition, analysis of key performance indicators on all routes and regular satisfaction surveys would help identify bottlenecks. Potential fixed links such as a bridge between Muhu (Saare County) and the mainland have the advantage of providing permanent connectivity to islands. The government needs to make sure the costs and benefits of such projects are thoroughly assessed. If implemented, accessibility must not be compromised by 104 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS excessively higher prices for crossings. Strengthening existing ferry connections might be a more viable option. Shipping emissions: Accelerate maritime emission reduction policies Scaling up shipping emission reduction policies could be achieved by the use of electric ferries, shore power and electric charging facilities, and environmentally differentiated port pricing. The Estonian government has the position via its public service obligations to make the local ferry fleet more ecologically sound, most likely by electrification. In parallel, the government would need to provide the necessary pre- conditions for this to work, namely to invest in electric charging systems and – more widely – to provide clean energy. The use of shore-power and electric charging in main Estonian ports should be supported by national legislation, comparable to the efforts made in the state of California in the United States. Estonia’s main ports should also transition towards full environmentally differentiated port pricing. This requires a more proactive role of the state in implementing port schemes, via its role as owner or shareholder in various Estonian ports. A port pricing system not only includes a bonus for best performing vessels, but also a malus for worst performing vessels. An interesting example of such a system is applied in Bergen, Norway, where the cleanest ships get a 17.5% rebate and the dirtiest ships a 150% surcharge on the general port tariff. While there is a centralised airborne emissions monitoring system in place, this system needs to integrate the measurement of air pollutants from shipping, such as NOx, SOx and particulate matter in order to verify the effectiveness of environmental measures in ports. 2.9. Aviation policy This section identifies key challenges with respect to aviation policy making in Estonia. It assesses the current state of the evidence base and the governance framework used to underpin policy and investment decisions for the sector. It then provides recommendations on how the decision-making could be improved, through implementing the systematic collection of aviation data and the use of newly proposed methodological and governance frameworks to guide transport project planning and selection. The ultimate objective of this section is to help design better decision-making tools for aviation policy makers in Estonia. Key issues There are few alternatives to aviation on many routes, as the only transport mode that can feasibly connect passengers and cargo over large distances in a short period of time. As such, aviation provides a very important role in a country’s development by facilitating tourism, investment, and trade in goods and services. The potential of air connectivity to deliver socio-economic benefits increases as air travel becomes less expensive and more accessible to passengers and freight forwarders. At the same time, aviation is responsible for large environmental costs. Residents who live around airports suffer from aircraft noise as well as air pollution and congestion on the roads - by-products of passenger, cargo, and airport staff travel from and to the airport. Moreover, aviation is one of the most carbon- intensive industries in the world and few opportunities are currently available to change that. The industry has made significant progress with respect to becoming more fuel efficient, but these improvements will not be able to offset the rapid increase in demand for air travel. Although aviation’s share of total carbon emissions stands at around 2.5%, the future poses significant climate-change challenges (ITF, 2019). To ensure that the benefits of air connectivity are maximised and the environmental challenges posed by the sector are mitigated, policy makers need to base their decisions on comprehensive air connectivity THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 105 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS reviews and assessments of all positive and negative impacts of the aviation sector on the economy and the society. This section outlines what evidence base the Ministry of Economic Affairs and Communications (MEAC) should collect to better inform its aviation policy-making. It also summarises the aviation policy-making findings of sections 2.1 Institutional Structure and 2.2 Infrastructure Planning and Project Selection. Policy makers rely on a limited evidence base to make decisions To get a comprehensive picture of air connectivity available to Estonians, policy makers need to be able to answer the following questions:  What flights are available directly from Tallinn Airport? What flights are available indirectly through connections at other airports?  How accessible is Tallinn Airport to passengers, cargo and airport staff? How much time does it take to get to the airport and what transport modes are available?  How happy are customers with the services provided?  Are there any hurdles to air connectivity provision? How can they be removed? Tallinn Airport, the owner and operator of all five airports in Estonia, collects the statistics answering the above questions. These statistics could be useful to the Ministry of Economic Affairs and Communications, in delivering periodic air connectivity reviews. Such reviews could then be used to track the progress of air connectivity available to Estonians and to better understand the connectivity impacts of prospective aviation policies or investments. Indirect connectivity is an important part of overall connectivity. In Estonia, Tallinn Airport (TLL) provides almost all air connectivity. The airport offers around 30 destinations (Figure 17) and handles 98% of all passengers in the country (Tallinn Airport, 2020). Tallinn Airport offers fewer destinations than Lithuania’s Vilnius Airport, which proposes 50 destinations in the winter and 57 in the summer (Vilnius Airport, 2020), and far fewer than Latvia’s Riga Airport with its 80 winter and 105 summer destinations (Routes Online, 2019). Although no transcontinental destinations are available from the airport directly, Tallinn Airport provides travellers with numerous connections to hub airports that offer long-haul connections. Over 50 connections are available every week, connecting passengers from Tallinn to regional aviation hubs in Helsinki and Stockholm. A high-level review of Tallinn Airport’s air connectivity indicates that the airport provides direct and indirect connectivity levels well above the average for similarly sized airports in Europe (ACI Europe, 2019).53 In the ACI Europe review of connectivity for European airports, Tallinn Airport’s connectivity fares better than that of Vilnius Airport: the direct connectivity scores for the two airports are comparable, but Tallinn offers around 30% more indirect connectivity than Vilnius. Riga Airport handles more than double the traffic numbers of TLL, which explains its direct connectivity score being roughly twice that of TLL. On indirect connectivity, the airports have very similar scores, reflecting Tallinn’s excellent indirect connections to several European hubs that offer long-haul connectivity. Both direct and indirect connectivity considerations need to be taken into account to paint the full air connectivity picture in Estonia. Periodic reviews of direct and indirect connectivity would enable the policy maker to track evolution and to identify possible connectivity bottlenecks and challenges. 106 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Figure 17. Destinations available from Tallinn Airport, summer 2019 schedule Source: Graphic of Estonia provided by the Ministry of Economic Affairs and Communications. Accessibility to Tallinn Airport needs to be included in connectivity reviews by the Ministry of Economic Affairs and Communications In Estonia, the MEAC currently does not systematically collect data on airport accessibility and surface access mode share for the Tallinn Airport. Airport accessibility is an important dimension of air connectivity and should be taken into account by air connectivity reviews. The systematic review of Tallinn Airport’s catchment area would provide an indication of the level of accessibility of air connectivity to Estonians. It would also allow for the identification of gaps in coverage, to ensure adequate access to air connectivity across the country. Such considerations should include access to international airports outside of Estonia. Riga Airport is the closest such airport, but at about five hours by car from Tallinn, it lies too far to be a viable option. However, when services on Rail Baltica begin, travel time to Riga could be significantly shorter. Connectivity and accessibility of the hub to Estonians may then be included in the air connectivity assessments for Estonia. Data on surface access mode share is another important consideration. The majority of passengers arrive or depart Tallinn Airport by car. According to the available data, about a quarter of passengers used public transport in 2019.54 A 2014 environmental impact assessment stated that Tallinn Airport had “no significant adverse effect on air quality in its vicinity, particularly given that aircraft emissions are discharged under higher pressure and at higher elevations” (Tallinn Airport, 2019). Tracking data on the sustainability of surface access over time would provide a useful supplement to the environmental sustainability considerations for TLL and allow policy makers to assess the extent to which airport traffic contributes to congestion and air pollution on the roads around the airport. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 107 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Passengers and aviation stakeholders need to continue to be heard In 2019, Tallinn Airport placed among airports receiving between two and five million passengers. One of the explicit objectives set by the Estonian Governments for Tallinn Airport is to be “beneficial for its owners, internal and external clients as well as for the society as a whole” (Tallinn Airport, 2019). The airport conducts annual opinion surveys of travellers in an effort to track the airport owner and operator’s performance on this objective, as well as to understand how government policy may be influencing passenger satisfaction. Tallinn Airport has enjoyed consistently high customer satisfaction rates over the past few years. The average overall satisfaction score for 2019 was 4.5 out of 5 in the ACI’s Airport Quality Survey, ranking Tallinn one of the top three airports in the category of European airports with up to five million passengers. Such reviews should become part of regular air connectivity assessments by the MEAC. They should complement the extensive consultations with aviation stakeholders – airports, airlines, air navigation service providers, education providers, local residents and businesses – already in practice. Lack of a systemic approach to modelling and appraisal in the transport sector contributes to suboptimal policy and investment decision-making There currently is no generally applicable guidance for policy makers on cost-benefit analysis of projects and appraisal methods remain inconsistent. Moreover, project appraisal is often conducted too late in the process to significantly influence project selection. In the aviation sector, like in other transport sectors, this can lead to suboptimal policy and investment decisions. Governance of the aviation sector is fragmented The governance of the aviation sector is fragmented. Civil aviation policy making is the responsibility of the MEAC. Consumer protection, including air passenger rights, is the responsibility of the Consumer Protection and Technical Regulatory Authority. The environmental issues in aviation fall within the jurisdiction of the Ministry of the Environment. The Estonian Civil Aviation Authority (CAA) is responsible for the implementation of international aviation safety. It also co-ordinates aviation security. The organisation focuses on ensuring compliance with guidelines and guidance set out by the International Civil Aviation Organization (ICAO), the European Union and the European Aviation Safety Agency (EASA).55 Some important public policy objectives are given to Tallinn Airport to execute, without supervision from an independent regulator. The mode-specific organisation of transport administrations combined with the small-country context also means that the CAA’s ability to develop sufficient technical capacities to expand on its functions is limited. The CAA currently employs around 30 staff members. It follows Estonia’s use of the “arms-length agency” model in the transport sector (OECD, 2014). As recommended by Section 2.1 Institutional Structure, the regulatory powers for aviation should be given to the newly created regulatory entity in Estonia. Avenues for reform The above discussion highlights issues in conducting aviation policy in Estonia. The recommendations that follow summarise specific avenues for reform in terms of data collection and analysis. They also summarise the recommendations from sections 2.1 Institutional Structure and 2.2 Infrastructure Planning and Project Selection that are applicable to the aviation sector. The recommendations are based on the following ITF documents and interviews:  ITF’s report on how to define, measure and improve air connectivity (ITF, 2018a)  ITF’s report on best practice with respect to project appraisal and selection in the air transport sector (ITF, 2017a) 108 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS  interviews with aviation and government stakeholders by ITF staff during a mission to Estonia in the autumn of 2019. Conduct periodic air connectivity reviews to support the decision-making framework The Ministry of Economic Affairs and Communications should conduct periodic air connectivity reviews to track the progress of air connectivity available to Estonians and to better understand the connectivity impacts of any prospective aviation policies or investments. Such reviews can be based on the data and statistics that are already collected by Tallinn Airport. Ideally, an air connectivity review should include:  direct and indirect air connectivity assessments  airport quality indicators  airport catchment area assessments  data on surface access mode shares. Direct and indirect air connectivity assessments: To assess the air connectivity levels available in Estonia, the MEAC needs to collect and assess both direct and indirect connectivity metrics. The use of indirect connectivity metrics is particularly important for a small aviation market, like Estonia, as intercontinental connectivity is typically only available indirectly – in the case of Estonia, by connecting passengers from Tallinn Airport with the long-haul route networks available at other European hub airports. Air connectivity statistics collected by ACI Europe (2019) provide a comprehensive overview of direct and indirect connectivity at European airports. The figures are publically available and can be sourced directly from the ACI Airport Industry Connectivity Reports56. The following connectivity metrics are included as part of the Industry Connectivity Reports by ACI:  Direct connectivity: assesses direct air services available from the airport, measured in terms of destinations and frequency (for example, an airport with five daily flights to another airport, will register a higher score than one with only four).  Indirect connectivity: measures the number of destinations available through connecting flights at hub airports from a particular airport. For example, if there is a flight to Amsterdam-Schiphol, Istanbul or Dubai, the large number of available onward connections from these airports expands the range of destinations available from the airport of origin. Indirect connections are weighted according to their quality, based on connecting time and detour with the indirect routing. For example, a flight from Manchester to Johannesburg via Paris-Charles de Gaulle in France will register a higher score than an alternative routing via Doha in Qatar.  Airport connectivity: takes into account both direct and indirect connectivity from the airport in question. Airport connectivity is defined as the sum of direct and indirect connectivity. It measures the overall level at which an airport is connected to the rest of the world, either by direct flights or indirect connections via other airports. The metrics provided by ACI Europe could be used by the MEAC for the purpose of national air connectivity assessments in Estonia. Should the Ministry decide to follow its own direct and indirect connectivity assessments, more information on how to measure direct and indirect connectivity is available in the ITF Report Defining, Measuring, and Improving Air Connectivity (ITF, 2018a). THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 109 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Airport quality indicators: The air connectivity assessments should be complemented by assessments of airport quality. Tallinn Airport currently collects these data through ACI’s Airport Service Quality Surveys. Tracking passenger experience at Estonian airports is crucial to ensuring that airports deliver excellent products to their customers. Airport catchment area assessments: To ensure that air connectivity is accessible to all citizens of Estonia, it is important that air connectivity assessments include metrics that reveal the time that is needed to reach Tallinn Airport from every region of the country. Such assessments can help identify gaps in airport access for specific areas. As previously mentioned, future assessments should also consider the proximity of Estonians to other international airports – in Riga, Latvia and Helsinki, Finland – provided the surface access to these airports improves to the extent to which they become viable substitutes for TLL. Data on surface access mode shares: Tracking data on the sustainability of surface access over time would provide a useful supplement to the environmental sustainability considerations with regards to TLL. This would allow for the assessment of the extent to which airport traffic contributes to congestion and air pollution on the roads around the airport. TLL already collects such information and MEAC should incorporate it in its air connectivity assessments. Finally, the air connectivity assessment efforts should be complemented by consultations with aviation stakeholders – airports, airlines, air navigation service providers, education providers, local residents, and businesses – on what they perceive to be the greatest challenges to connectivity and how they can be overcome. More information about the scope of such consultations, as well as how they can be run in practice, can be found in an ITF report that reviews decision-making in the aviation sector across several different ITF countries (ITF, 2017a). Estonia has a well-established process of stakeholder consultation in the aviation sector, which could be used to feed important industry, expert, consumer and community considerations into the Ministry’s air connectivity reviews. Rely on a systematic transport modelling and appraisal practice to underpin policy and decision-making Section 2.2 Infrastructure Planning and Project Selection provides recommendations on how to build a systematic transport modelling and appraisal practice in the MEAC to support better policy and investment decision-making. The analysis provided in the section reveals that useful modelling and appraisal tools exist. However, there is currently no formal guidance or approach to ensure that these tools are used to support the decision- making in the Ministry. This also appears to be the case in the aviation sector. Tallinn Airport collects and actively uses important air connectivity data and other data for decision-making. The air connectivity metrics (as suggested previously) should be used in support of aviation policy making in the MEAC. In the context of the aviation sector, a systematic transport modelling and appraisal practice should ideally make provisions on how to consider any possible wider impacts of transformative aviation projects, beyond the costs and benefits that form part of standard cost-benefit analysis, such as increased labour productivity or investment (ITF, 2017b). Identify air connectivity bottlenecks by taking a cross-sectoral perspective on mobility Section 2.1 Institutional Structure provides the details on how institutional reforms will enable a cross- sector perspective on mobility challenges in Estonia. It also explains the benefits of such a cross-sectoral approach. The ongoing and proposed institutional reforms in the transport sector will provide an opportunity for policy makers to determine how the aviation sector can best support transport connectivity across modes. 110 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Conversely, a cross-modal perspective will inform policy makers whether improvements to surface access could help improve the overall air connectivity. Assessing connectivity and accessibility across modes will enable a more cost-effective (and cross-modal) allocation of resources to improve mobility in Estonia. Such cross-modal considerations also are crucial to identifying the level of subsidies that may be needed to support otherwise commercially unviable remote connectivity (ITF, 2018b). Public service obligations (PSOs) currently provided to air carriers to preserve year-round connectivity between the two largest Estonian islands and the mainland should be revised with a cross-modal perspective. The procurement of PSOs across all transport modes has recently become the responsibility of the Road Administration, which has indeed created opportunities for cross-modal connectivity considerations. Help the aviation sector deliver national and regional policy objectives through improved governance Tallinn Airport’s delivery of national and regional policy objectives needs to be scrutinised by the newly proposed regulator to ensure that aviation in Estonia maximises the benefits to consumers and the wider economy, and that the environmental impacts of aviation are mitigated to the extent possible. This should be considered vis-à-vis institutional reform proposals to establish a regulatory and supervisory agency with responsibility for all modes and ensuring that regulatory functions have an adequate degree of independence from the government. More details behind this proposal can be found in Section 2.1 Institutional Structure. 2.10. Future mobility: Adapting to technological and climate changes This report reviews the approaches and processes currently used by national and municipal transport governance institutions in Estonia to underpin the identification, research and development (R&D), testing, procurement, governance and regulation of new and emerging transport technologies. It also assesses strategies to future-proof infrastructure design, particularly vis-a-vis climate change impacts. It offers recommendations for planning, procuring and regulating new and emerging transport technologies and services that are aligned with the policy proposals for institutional and procurement reform made elsewhere in this report. Key issues The key perspective underlying this section is that the world is on the cusp of a transport technological revolution. The combination of electric vehicles, micromobility, mobility as a service and autonomous transport will transform the way we live and work. The broad scope of these changes presents challenges for public authorities in understanding how to ensure the outcomes meet societal objectives, and for private organizations, whose business models are being disrupted and need to be remade. A considered and strategic approach toward the adoption of new technologies in the transport sector is needed if the opportunities and benefits provided by them are to be maximized and the costs of adoption are to be minimised. Developing such an approach requires policy-makers to clarify the goals and priorities that they believe innovation should support, and to develop a detailed and explicit plan of action for achieving them. Establishing a structured dialogue with a range of stakeholders will facilitate both of these tasks. The section thus identifies key impediments to the achievement of these outcomes and means by which they can be addressed. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 111 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Fragmentation of innovation-related knowledge and research contributes to a lack of co-ordination of transport innovation policy Both the Estonian Parliament and the Government have established significant bodies to address innovation and research policy. The Estonian Parliament’s Foresight Centre is a think tank that conducts foresight projects on various topics with the aim of analysing long-term developments in the society and identifying new trends and developments. The study teams include Estonian and foreign experts. The Research and Development Council is a government-led body, chaired by the Prime Minister and having a membership comprising three other government ministers (including the Minister of Foreign Trade and Information Technology) and eight government appointees. Two permanent committees, each chaired by a minister, support its work.57 the Innovation Policy Committee, chaired by the Minister of Economy and Communications; and the Research Policy Committee, chaired by the Minister for Education and Research. The committees report annually to the Research and Development Council on the results of their work and their agendas for the year to come.58 An example of a significant non-government entity operating in the field is the long-established Estonian Institute for Future Studies at Tallinn University. The department includes a focus on innovation policies as part of its work programme and has previously completed a review of Estonian innovation policy for the European Union.59 Estonian officials reported that numerous other initiatives, both governmental and non- governmental, address specific topics that may be of direct or indirect relevance to the transport sector. These include numerous overlapping working groups, initiatives, labs, research projects, test beds and industry platforms. These initiatives draw on the services of officials from EU institutions and the Estonian government, private sector employees, including those of industry associations and companies from both established and emerging industries, and the international and national research and development community. The extent of this institutional architecture suggests that innovation and its policy implications are a high priority in Estonia. However, interviewees stressed that there is a high degree of fragmentation, with a lack of formal arrangements for co-ordination or knowledge sharing between the various players in the field. To the extent knowledge sharing occurs, it is highly reliant on informal mechanisms, particularly personal relationships between members of different bodies. As well, a lack of clarity regarding the relative roles and areas of engagement of the various bodies leads to uncertainty as to which should be invited to participate in different initiatives. Overall, the system is opaque, causing much difficulty for public and private actors wishing to plan and implement investments in innovative future transport infrastructure and service initiatives. For government, this lack of effective co-ordination leads to two contrary problems. First, decisions regarding technology investments, which potentially have a large impact on transport services (e.g. the implementation of a future 5G network), are often made without adequate consultation and co-ordination between the Ministry of Economy and Communications (MEAC) and the relevant Ministries and agencies.60 Conversely, similar technology assessment projects are sometimes undertaken multiple times by different entities, due either to a lack of clarity as to areas of responsibility or to inadequate transparency and communication. Both government officials and private actors argued that the lack of a co-ordinated process to identify, assess and test new and emerging transport technologies and services is a significant issue. Officials noted that these weaknesses in addressing technology and innovation issues contrast sharply with the internationally recognised, best practice “e-governance in Estonia” programme providing IT infrastructure and services to citizens and e-residents and enhancing the quality of their online interaction with the public administration. If Estonia is to become a leader in future mobility services, the current 112 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Transport and Mobility Master Plan needs a similarly coherent strategy, incorporating a planning and co-ordination process and funding structures.61 Staff capacity and resources are limited Officials argued that ministries and government agencies have limited numbers of staff with the expertise to analyse new technologies and services and advise on their future role in, and implications for, the transport system. The level of expertise in this field within ministries was said to be largely dependent on the personal background, interest and networks of government officials, rather than the result of strategically directed recruitment and retention programmes. This lack of capacity within government agencies is exacerbated by the fragmentation of responsibilities and lack of co-ordination identified above: the limited expertise available is unlikely to be put to its best use. This is due to both the restricted scope within which the relevant experts can operate in many cases, and the fact that institutional fragmentation reduces opportunities for capacity development via formal training and on-the-job learning. A significant capacity imbalance exists between government and the private sector. This raises concerns regarding ministries’ ability to engage effectively with private providers in a range of contexts. In particular, these include the development of appropriate contract specifications for the provision of transport-related services and the assessment of the quality of services delivered. This implies large problems in making judgements on value for money issues, leading to a tendency for government to overpay for privately provided services and/or face under-delivery in terms of quality and timeliness. MEAC officials are aware of the potential benefits of implementing innovation procurement strategies in the transport sector, both in terms of effectiveness and value for money, and are undertaking some initiatives that address this objective. For example, MEAC is participating in an EU-funded project that seeks to use Pre-Commercial Procurement (PCP) strategies. These aim to “challenge industry from the demand side to develop innovative solutions for public sector needs”, effectively enabling public sector purchasers to specify their requirements in terms of desired outcomes, rather than specific technological inputs (European Commission 2020).62 However, full integration into the regular procurement process is lacking, mostly due to a lack of specialised staff. Staff capacity and capability issues were also cited as a key reason for the lack of a transport innovation strategy in the proposed National Transport and Mobility Master Plan. Ad-hoc regulatory responses to new mobility services do not maximise their benefits in support of long-term transport policy goals Estonia is home to Bolt (formerly Taxify), a long-established and successful ridesourcing operator that has more recently expanded its operations into the micromobility field, as well as other services including food delivery. However, while Taxify commenced operations in Tallinn in autumn 2013, an amended Public Transport Act, which enabled Taxify and other ridesourcing competitors to operate on a level playing field with the taxi sector, did not come into effect until over four years later, on 1 November 2017. This very long delay in developing and implementing an appropriate regulatory response occurred despite parliamentarians first announcing support for legalising ridesharing almost three years before the commencement of the new legislation, in February 2015, and the announcement of specific plans to amend the Act in December of that year. The delay in legislating to accommodate the market entry of ridesourcing can be attributed to a number of factors, several of which have been replicated in other countries’ responses to disruptive new mobility services. For example, as in many countries, policy makers faced strong lobbying from highly regulated incumbent taxi industries, arguing that they should prohibit, or tightly restrict, ridesourcing operations. In THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 113 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS addition, during the development of legislation to regulate the sector, there were significant shifts over time in the policy approach proposed. These included a range of specific issues that had potentially major implications for the development of the sector, such as whether there should be geographical limits on ridesourcing operations and whether they should be required to use electronic hire systems. Underlying these policy shifts were differing perspectives as to whether ridesourcing should be seen as part of the public transport system – i.e. as equivalent to taxis – for most or all purposes. This can be seen as part of a broader problem: lack of a strategic, principles-based approach to guide policy responses to new mobility services. Similarly, as of June 2020, no further amendments to the Traffic Act to provide a regulatory framework for e-scooters have yet been adopted in Estonia. Indeed, it was reported in May 2020 that the Tallinn government had yet to decide on the threshold issue of whether scooters would be officially authorised for use.63 This, despite the fact that Bolt became the first urban mobility provider to offer both ridesourcing and e-scooters on the same platform, over two years ago, and that e-scooters were introduced to Tallinn in the early summer of 2019. The development of a clear, principles-based approach to new mobility services is, to a large degree, dependent on the existence of a wider policy framework, in the form of a Sustainable Urban Mobility Strategy (SUMP). A SUMP should set out a clear medium- to long-term view of what forms urban mobility should take, what modal shifts are required in order to achieve this and how to achieve them. This issue is discussed in more detail in Section 2.5 Steering User Behaviour and Public Transport Policy. No climate change risk assessment plan has been developed for transport infrastructure and service issues Several international organisations have highlighted the challenges of protecting transport infrastructure assets and maintaining their functionality in the face of the increasingly frequent and extreme weather events resulting from climate change. For example, PIARC (the World Road Association) argues that Coastal roads and bridges may need to be elevated. New design features to cope with increased coastal storm intensity will need to be developed. Drainage capacity will have to be enlarged to address heavy downpours and reduce flooding. New, heat-resistant materials and equipment will need to be put into place as the number of extreme temperature days are predicted to increase. (PIARC, 2016) The ITF (2016) has previously noted that addressing these issues at the level of individual infrastructure assets is complicated by both the degree of uncertainty inherent in most climate modelling and the fact that these models rarely provide specific insights regarding impacts at individual locations. However, climate impacts should be considered in relation to both the siting and the design specification of new infrastructure assets, to manage these risks as far as possible. In relation to existing assets, there are implications for both the extent and scheduling of maintenance and in terms of potential asset design modifications. As most of the transport infrastructure that will be in use in 30 years has already been built, the implications of climate change for existing assets constitute a large part of this issue. At a macro-level, governments must address questions of ensuring overall system resilience in the presence of increased risks of individual assets going out of service. Resilience, in this context, implies minimising the impact of an asset failure on the performance of the wider system. The importance of system resilience will necessarily increase over time because climate change is expected to increase the incidence of asset failure, particularly in relation to “legacy” assets. Discussions with Estonian officials indicate that they are aware of the need to take climate change risks into account in planning transport investments and services, in order to future proof the overall transport system. Officials also highlighted the existence of the Climate Change Adaptation Development Plan Until 114 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS 2030 (Government of Estonia, 2017). The adaptation plan is intended to increase the readiness and capacity of state, regional and local government entities to adapt to the effects of climate change. It sets out sub-goals for eight priority sectors, including infrastructure. The Adaptation Plan explicitly mentions a number of expected effects of climate change on transport infrastructure and highlights the implications for maintenance expenditures. However, the estimated expenditures for implementation of the plan in the infrastructure sector as a whole (i.e. including transport and other sectors) are extremely modest, totalling only EUR 320 000 of the EUR 43.7 million for the eight priority sectors. Most of this expenditure is budgeted for the 2017-2020 period. The Plan also identifies the National Transport Development Plan 2014-2020 among a large number of “development vision documents related to the adaptation to the effects of climate change” (Government of Estonia, 2017). However, none of the specific action areas addressed in the Plan appears to relate -specifically to adaptation as it relates to transport infrastructure. The existence of a climate change adaptation plan, which considers these issues at a national, cross- sectoral level, provides a starting point for the development of the more detailed and sector-specific work that will be necessary in order to ensure that high- level resilience to climate risks is built into transport infrastructure as efficiently as possible. However, significant action in these areas is still needed to ensure that these goals are achieved in practice. Estonia’s National Transport and Mobility Master Plans have yet to address climate change adaptation and resilience issues, as they relate to transport infrastructure. Meteorological and climate factors are manageable risks. Asset managers can and should respond to them when designing and siting infrastructure assets. However, because climate parameters evolve in unpredictable ways, failure to address climate change resilience at a systems level, including by developing new or expanded decision-making models, entails significant risk of:  under-specification of infrastructure design standards, leading to asset failures and/or service degradation  over-specification of standards, leading to unproductive investments. Failure to address climate change adaptation systematically, therefore, has substantial efficiency and cost impacts on major infrastructure. Avenues for reform The above discussion highlights issues in respect of the lack of strategy, institutional co-ordination and staff capacity in Estonia. Such inadequacies prevent Estonia from taking full advantage of new and emerging transport technologies while ensuring the consistency, coherence and clarity of long-term investment plans. The following identifies key avenues for addressing these issues in an effective and co-ordinated way. Establish clear goals and priorities for innovation in the transport system Estonia should better articulate its transport innovation policy goals. Ensuring that goals and priorities are clearly articulated is a prerequisite for the development of the strategies and processes required, and identifying the resources needed to achieve them. The goals and priorities should be broad in scope, reflecting the potential for technological and business innovation to play a key role in delivering better economic, social and environmental performance across the transport system. They should also be consistent with the strategic objectives of the National Transport and Mobility Master Plan and the recommendations contained in the various sections of this report. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 115 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS The Strategic Policy Division of MEAC should lead the process of evolving and defining goals and priorities. The proposed TRC, which should act as a hub for technical expertise in a number of related fields, should have a core role in this regard. The process should also include sustained engagement with the range of innovation-focused institutions across Estonia’s government and society. Dialogue with these bodies should be part of the goal-setting process. This will help ensure that the goals and priorities identified are aligned with broader government policies and with trends in the wider economy. The innovation-related recommendations made in other sections of this report (e.g. Section 2.5 Steering User Behaviour and Public Transport Policy) should also be considered during this process. Establish a structured dialogue with major innovation-focused institutions The above discussion highlights the fact that Estonia has many institutions with an innovation focus. They include the various science and technology councils and advisory boards existing at governmental and parliamentary levels, those located in key ministries and those found in universities and the business sector. Estonia is also internationally known for its successes in using innovative technology and service models to improve government services for, and interactions with, citizens. These factors equip Estonia to take a pro-active approach to leveraging innovation in technology and business models in the transport sector. However, the current fragmentation in the transport sector largely compromises its performance. Thus, major improvements are needed in the co-ordination and co-operation arrangements between these entities, if this opportunity is to be realised. This issue necessarily extends beyond the transport sector, given the breadth of activity of many innovation bodies. While beyond the scope of the current report, a government-wide approach to improving co-ordination between innovation-based bodies across the public and private sectors would likely yield substantial benefits. The example, cited above, of the cross-sectoral impacts of 5G technology highlights the potential benefits of a broader approach. However, transport-specific initiatives can be put in place even in the absence of broader co-ordination activity. A number of Estonian government bodies, including the Roads Administration and the MEAC, are members of Intelligent Transport Systems (ITS) Estonia, which unites different organisations from public, non-governmental and private sectors in the field of intelligent transportation systems (ITS) and acts as a platform for co-operation and innovation.64 However, there is scope to supplement participation in this co-operation platform with a process of structured dialogue. This should be broader than the ICT focus of intelligent transport systems and, on the other hand, specifically oriented toward developing a strategic focus on integrating transport innovation in the National Transport and Mobility Master Plan. This dialogue should be maintained over time in order to provide a mechanism for reviewing progress and revising and updating the Master Plan and the proposed Transport Technology Roadmap (TTR – see below). The MEAC should establish a structured dialogue with a range of innovation-focused institutions that address transport-sector issues, or technologies that have or may have significant transport-related impacts. Improving communication between these bodies by providing channels for information exchange and promoting co-operative endeavours should significantly reduce the efficiency costs of duplication and overlap and encourage specialisation and comparative advantage. Through this process of closer engagement, MEAC would also acquire a greater knowledge of the capacities and foci of the relevant bodies, enabling it to advocate within government for a clearer delineation of their respective roles. Establishing clear goals and priorities for innovation in the transport sector, as proposed above, will support this co-operation by clearly identifying for all stakeholders the objectives of formalised co-operation and co-ordination. Conversely, engaging with innovation-focused bodies as part of the process of developing these goals and priorities will provide a useful starting point for developing and 116 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS deepening future dialogue. The identification of goals and priorities is also a fundamental starting point for the development of a Transport Technology Roadmap, as recommended below. Develop a Transport Technology Roadmap as part of the Transport and Mobility Master Plan Box 3 provides an example of a formal Transport Technology Roadmap (TTR), identifying the key inclusions and the objectives that it is intended to serve. Adopting a formal TTR would help Estonia guide the work on the future impact of technology on transport undertaken by various organisations across the government and beyond. It could help ensure the work is strategically directed and operationalise its conclusions via linkage with the National Transport and Mobility Master Plan. It would facilitate better co- ordination among the different organisations addressing these issues by giving expression to the government’s vision of the evolution of technology in transport. Given MEAC’s lead role in the Master Plan, MEAC should also take responsibility for developing the TTR. The TTR would serve to clarify the government’s policy priorities and orientations for transport innovation. It should necessarily take account of the strategic orientations and research undertaken by the European Commission, including:  the development of the Strategic Transport Technology Plan (STTP) as a strategic framework for transport research, innovation and deployment, based on the 2011 White Paper (European Commission, 2011) which set out a vision for an integrated, efficient, safe, secure and environmentally friendly European transport system by 2050; and  the Strategic Transport Research and Innovation Agenda65, developed as part of the Horizon 2020 programme. The Future Transport Technology Roadmap, adopted by the government of New South Wales, Australia (New South Wales Government, 2016), provides an example of a TTR. The Roadmap is outlined in Box 3. The TTR should be regularly reviewed and updated, with significant input from international experts, to ensure its continuing relevance in a necessarily uncertain and rapidly changing environment. However, while regular updating of the TTR is essential, this must occur within the context of a clearly articulated set of policy principles to ensure a consistent approach and predictability for service providers. The TTR would form the basis for the development of a number of key dimensions of transport policy, in particular:  a research and development funding strategy  a procurement strategy for transport services  a regulatory strategy for the sector. A number of ITF Member countries have recently undertaken substantial reviews of the impact of changing technology on the transport sector. The Estonian government could look to its experience when developing its TTR and related strategies. For example, the United Kingdom government announced its “Future of mobility: urban strategy” in March 2019. Its intention is to: “… explore regulations around new types of vehicles including e-scooters and e-cargo bike trailers, how sharing data can improve services by reducing congestion, and how journey planning and payment can be made more simple. This wide-ranging review will also explore modernising laws from the 1800s that are providing a barrier to innovation.” (UK Government, 2019). The strategy also includes funding for the establishment of four “future mobility zones” to test innovative ideas in areas such as payment systems, travel information and transport modes, intended to improve the convenience, reliability and cost of urban travel. Of note, the strategy identifies nine principles as underpinning the approach the government will take to facilitating innovation in urban mobility. These THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 117 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS address issues of system integration, safety, sustainability, consumer benefit, open market places, information sharing and the promotion of active transport. Box 3. Future Transport Technology Roadmap of New South Wales The Future Transport Technology Roadmap of New South Wales identifies 12 emerging technologies that are expected to transform transport. They are grouped into four categories:  customer interface technologies  data and insight technologies  infrastructure technologies  vehicle technologies. A key orientation of the Roadmap is recognition of the importance of the societal response to the various technologies in determining the role they are able to play in changing transport systems. This results in the specification of four scenarios that may develop over a 20-year period. The scenarios help identify key issues and consequences that may need to be addressed, given the range of different outcomes emerging technologies will make possible. These are based on:  retention of a predominant orientation toward the use of private vehicles as automated vehicles are adopted  a mixed-mode model, entailing a substantial shift toward mobility-on-demand services  a major shift toward public transport, driven by major investment in service improvement  a major flattening of transport demand due to high take-up of “virtual accessibility” options. Finally, the Roadmap identifies five strategies, to be adopted by the transport agency to address technological developments and societal responses and develop an innovative and “customer-centric” transport model. These are: personalising customer interactions; transforming mass transit networks; fostering shared, demand-responsive services; enabling connected and automated vehicle platforms; and creating intelligent transport networks managed with data. Source: New South Wales Government (2016). Australia provides another example of a high-level approach to addressing the issues raised by technological change in transport. Here, the government established the Office of Future Transport Technology (OFTT) in late 2018. The office has a more limited remit than in the United Kingdom case, in that its role is limited to the issue of autonomous vehicles. However, it is intended to address a wide range of issues within this field in order to “prepare for the deployment of automated vehicles in Australia”, in co-operation with sub-national governments. The government’s National Policy Framework for Land Transport Technology, under which the OFTT has been established, sets out the following four roles for government:  Policy leadership – providing a clear, nationally co-ordinated approach across different levels of government, being responsive to changes in the technological environment  Enabling – ensuring that the private sector is able to bring beneficial new technology to market 118 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS  Supportive regulatory environment – ensuring that community expectations of safety, security and privacy are appropriately considered in new technology deployments  Investment – investing in research, development and real-world trials that benefit the entire transport network customer base or provide a sound basis for government decision-making (including collaboration with the private sector).66 The OFTT is responsible for policy co-ordination within the infrastructure portfolio, across other portfolios of the Australian government and with all relevant sub-national governments, as well as for community engagement on related policy issues. Another approach to addressing the impacts of technological change on the transport sector at a strategic level is the New Zealand Department of Transport’s “Regulation 2025” programme. This explored the potential impact of technology on the transport systems and societal willingness to adopt new technology. It saw a core question as being whether governments can simply adapt current regulation to meet future needs, or whether more fundamental regulatory change would be required. The project included the development of a range of research papers addressing different aspects of the topic (New Zealand Government, 2016).67 Establish a dedicated group in the proposed Transport Research Centre to develop the Transport Technology Roadmap and facilitate its integration into the National Transport and Mobility Master Plan Section 2.1 Institutional Structure recommends that a well-resourced Strategic Policy Division within MEAC should have responsibility for strategic policy development across all transport modes and that it should incorporate a Technical Resource Centre (TRC). The TRC would provide high-level technical capabilities in key areas, thus supporting the MEAC’s strategic planning capacity and enabling it to prepare high-quality procurement strategies. The TRC should also act as a centre of expertise for transport technology development. It should also lead the development of the TTR. Section 2.1 Institutional Structure argues that, in order to enhance the role and influence of analysts within the government, the TRC should be led by a Chief Transport Economist and supported by a Chief Procurement Officer. The appointment of a Chief Transport Technology Officer, whose primary responsibility would be to develop the TTR, would also seem fitting. It would provide a focal point for the development of policy on the direction and speed of technological development in the transport sector and would have two related advantages:  It would clarify that the MEAC holds the primary responsibility for ensuring co-operation and the exchange of information between bodies engaged in transport technology-related research.  It would ensure the central point for the analysis of transport technology issues lies within the MEAC – i.e. the organisation that has primary responsibility for long-term transport planning, via the National Transport and Mobility Master Plan process. Section 2.1 also recommends that the Strategic Policy Division be responsible for developing a high-level transport model that is as recommended in Section 2.2 Infrastructure Planning and Project Selection. This provides further rationale for locating co-ordination on transport technology-related issues within the Division, given the importance of these issues for future transport modelling. That is, the TTR would be a core input to the transport model, which would, in turn, inform the timing and sequencing of key elements of the TTR. The TTR should be developed in co-operation with key Estonian research bodies such as the Information Society Advisory Board, the Research and Innovation Council, e-Estonia Council and the THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 119 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Ministry of Education and Research and with relevant EU bodies (e.g. DG Research and Innovation, DG Mobility and Transport). The Strategic Policy Division should employ a Senior Data Scientist to ensure transport planning is informed by timely and high-quality data inputs. The importance of the issue was underlined repeatedly in ITF’s consultations with government officials and business representatives. They expressed concern that there is currently a lack of accessible data and insufficient data analysis capacity. In addition, opportunities to leverage transport data into value creation opportunities are often missed, partly due to regulatory restrictions. A key role of the Senior Data Scientist would be to identify which bodies hold what data, to disseminate this knowledge, and to work toward improving data access over time. This could be done through better linkages between databases, access agreements and investigating the merits of establishing a central, authoritative database. This is likely to be particularly important as opportunities to develop Mobility as a Service (MaaS) platforms are explored. Adopt a positive and principles-based approach to regulating new mobility services that is linked to Sustainable Urban Mobility Plans Disruptive technologies pose fundamental challenges to the way governments regulate in many fields. They bring rapid changes to markets and services that often exceed the capacity of traditional regulatory systems to respond. Existing delineations of markets and sectors are often made redundant, challenging regulatory enforcement and transcending administrative boundaries, domestically and internationally. Conversely, laws and regulations are highly influential in determining the speed and direction in which emerging technologies develop, and their benefits to society. Governments must balance the need to foster innovation and accommodate technology-driven disruption while ensuring adequate protections for people and businesses (OECD, 2020). New mobility services have provided examples of this paradigm in recent years. They have rapidly transformed the urban transport landscape in many cities globally. They have increased consumer choice and rapidly gained market share due to the large welfare gains that have arisen from the combination of new technologies and/or new business models. In some cases, a key benefit has been the ability of new services to highlight and challenge outdated regulatory arrangements that no longer serve the public good. Disruptive technologies and business models are likely to have even more transformative effects in the transport field in coming years, as major innovations including drones, autonomous vehicles and Mobility as a Service (MaaS) establish themselves in the urban landscape. Governments must adopt sound and timely regulatory responses to new services and models if their potential benefits are to be realised and the costs and negative externalities associated with their use minimised. This is most readily achieved if policy makers operate within a well-established, principles-based framework when developing regulation. Both the lengthy and apparently confused approach taken to accommodating ridesourcing in Estonia and the failure to adopt a sound regulatory framework for e-scooters, as described above, are indicators of the importance of Estonia pursuing this path. Box 4 sets out ITF’s specific recommendations for such a principle-based approach. More broadly, the OECD’s work on regulatory policy points to the need for governments to respond to the challenge of disruptive technologies by adopting “Governance Innovation” that enables more dynamic, flexible and technology-neutral approaches to regulation and its enforcement (OECD, 2020). When determining how to respond to disruptive innovation, a key question is at what stage to regulate. Regulating early, before the dynamics of the emerging market(s) in which the new technology or business model operates are well-understood obviously carries large risks of adopting poorly targeted regulation that has unanticipated costs and limited effectiveness in addressing actual harms. Conversely, there is 120 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS often heavy pressure to regulate new markets and a too cautious approach can, on occasion, lead to substantial harm. Because of these competing concerns, a key characteristic of regulation adopted in a rapidly changing environment is that it should be “responsive” or “adaptive”. Box 4. A principles-based approach to regulating new mobility services Maintain a permissive regulatory environment for new mobility services A generally permissive approach should be adopted, recognising that substantial welfare benefits have been derived from new mobility services to date and a prohibitionist stance to future innovations will likely prove highly costly. New products, services and activities should generally be permitted unless there is specific and credible data suggesting they will impose net social costs. Treat incumbent mobility providers and new entrants equally The fact that disruptive technologies and business models can impose significant losses on incumbent businesses does not justify using regulation to protect the incumbent businesses’ positions. Where governments seek to cushion these losses, other policy instruments should be used. Regulatory differences should be limited to those implied by the different market impacts of their business models. Revise outdated and fragmented regulatory frameworks for mobility services Existing regulations that unreasonably prevent the creation of new business models should be urgently reviewed so to reap the benefits of innovation. Regulations that unreasonably prevent incumbent businesses from competing with disruptive entrants should also be reformed, absent continued justifications in terms of consumer safety and security. Focus regulation on addressing clearly identified market failures Regulation should address clearly identified market failures or substantial equity concerns. Regulators should avoid acting before the market dynamics of new business models are well understood. However, there may be occasions where ex-ante regulation is needed to address clearly foreseeable harms. Take the broader urban policy environment into account when designing regulations The likely impact of new mobility services on urban policy goals including pollution, climate change, congestion, liveability, accessibility and connectivity should be considered when designing regulatory responses. However, policy makers should clearly distinguish between objectives that are appropriately pursued through sector-specific regulation and those that can only be properly addressed using broader policy tools. Consider subsidies where appropriate and invest in supporting infrastructure Where significant social or externality benefits can be provided by new mobility services at the lowest cost (eg. improved connectivity, reduced congestion), there may be a case for either directly subsidising provision or investing in supporting infrastructure to encourage take-up. Source: adapted from ITF (2019). This means that there should be a particular focus on ex-post monitoring of regulatory impacts. Aspects of newly adopted regulatory structures will need to be revised or even replaced within a short timeframe, as unanticipated impacts are recognised and understanding grows of new market dynamics. This approach THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 121 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS stands in contrast to traditional views of regulation as changing only infrequently. The fact that Estonia has had a requirement for ex-post Regulatory Impact Assessments (RIA) in place since 2012 provides a sound underpinning for a system of adaptive regulation, since an ex-post RIA ensures that regulatory impacts are measured against initial expectations and weighed systematically and quantitatively. The MEAC should undertake timely and thorough ex-post RIA and ensure that the results drive timely regulatory changes where indicated. This principle of responsive regulation can also be expanded by encouraging regulators to develop an “anticipatory engagement” in the innovation process. Doing so would help identify concerns at an early stage and to steer, in a co-operative manner, the deployment of technology. This can include the use of experimental models of regulation – so-called “regulatory sandboxes” – which offer limited-term exemptions from pre-existing regulatory rules, within an agreed context and can provide opportunities for rapid learning for all parties. Importantly, as well as presenting regulators with new challenges, innovative technology has the potential to provide them with new tools that enable them to regulate better. For example, digital technologies can support real-time monitoring, while sophisticated data collection and analysis can drive better-targeted inspection and investigation activity. Thus, technology can significantly enhance enforcement capabilities. Collaborative approaches can also enable better-tailored regulatory responses. On one hand, this can involve collaboration with regulators in other jurisdictions, enhancing the exchange of knowledge and experiences. Such partnerships can speed up the development of well-adapted regulatory responses. On the other hand, it should include collaboration with the adopters of new technology. While stakeholder consultation is an integral part of any high-quality regulatory process, this is particularly important in the context of new technologies and services, where the need to understand the technology, its risks and benefits and the underlying business models is acute. In the OECD’s most recent survey of regulatory policy and governance systems, Estonia scored above the OECD average on five of the six iREG indicators. Three important elements of Estonia’s system are the widespread use of RIA, including requirements for both preliminary and ex-post RIA; the existence of the Strategy Unit at the Government Office, which co-ordinates stakeholder engagement in policy making across government; and the well-established Legislative Quality Division at the Ministry of Justice, which takes a leading role in implementing a range of key elements of the regulatory policy (OECD 2018). The MEAC should ensure that it engages fully with these agencies to maximise the quality of its regulatory responses to new mobility services. As noted above, policy formation in relation to new mobility services (including regulatory development) should be guided by a Sustainable Urban Mobility Plan (SUMP). SUMPs are discussed in more detail in Section 2.5 Steering User Behaviour and Public Transport Policy. However, the key considerations in this regard are that regulatory approaches should support the objectives of the SUMP in relation to modal shift. All SUMPs are predicated on the view that urban transport should be re-oriented toward a greater use of public and active transport modes, through both positive incentives (improved public transport provision, cycling and infrastructure, etc) and negative incentives for private vehicle use (e.g. reallocation of road space, parking pricing and availability policies, congestion charging). Several new mobility services, such as e-scooters and shared bicycle schemes, are clearly consistent with SUMP objectives. However, research suggests there is significant uncertainty about the net impact on vehicle kilometres driven (vkm) of ridesourcing. It is likely that broader policy responses and the wider transport environment potentially have a major impact on the outcome in a specific urban context. For example, incentives for ridesourcing to be used for first/last mile journeys may significantly change the sector’s overall vkm impact. Thus, regulatory issues in relation to this and other modes (e.g. autonomous 122 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS vehicles) must be addressed within a wider policy context (ITF, 2019). In the medium term, similar considerations will be relevant in developing policy responses to autonomous vehicles. Develop a nation-wide climate resilience analysis for the Estonian transport system As previously noted, no national climate change risk assessment plan has been developed despite Estonian officials’ awareness of the need to consider climate change risks when planning transport investments. The National Transport and Mobility Master Plan should set out the broad lines of Estonia’s approach to this issue. In developing an integrated response to climate resilience, Estonia should keep in mind the principles elaborated in ITF’s recent research on adapting transport systems to climate change, which are summarised in Box 5. Box 5. Adapting transport systems to climate change and extreme weather Act now to preserve the value of transport infrastructure and maintain network performance Planning decisions for assets with 50+ year lifespans must take account of their significant potential exposure to climate hazards, including in relation to siting choices. For shorter-lived assets, climate impacts should be considered in asset renewal decisions. Protect transport infrastructure from climate hazards through good maintenance Good maintenance practices are a powerful hedging tool, reducing asset vulnerability to climate impacts. Sensors and communication technology can help target maintenance effort. Prepare for more frequent and unexpected failures of transport infrastructure Asset managers should plan for scenarios in which multiple hazards lead to unexpected or cascading failures. Co-located infrastructure poses particular risks. Preparing for hazard scenarios requires good communication and co-operation among stakeholders. Account for temporary unavailability of transport assets in service continuity plans Extreme weather may make assets temporarily unavailable without significantly damaging them. Continuity plans should include re-routing, use of other modes and plans to bring the asset back online rapidly. Assess the vulnerability of assets and networks to climate change and extreme weather Vulnerability assessment allows adaptation efforts to be prioritised based on potential consequences but must be undertaken at both asset and network level. Risk assessment is a key element of this task. Focus on transport system resilience, not just on designing robust infrastructure Resilience-based approaches accept occasional asset failure as an unavoidable outcome and focus on minimising the consequences. This means moving from the passive defence of infrastructure to planning for “safe failure”. Re-evaluate thinking on redundant transport infrastructure Network redundancy has value where more asset failures may occur as a result of climate change. This requires new methodologies for assessing the value of redundancy. Do not rely solely on cost-benefit analysis when appraising the value of transport infrastructure Cost-benefit analysis (CBA) is useful where the probability of future climate effects can be assessed and quantified robustly and adopting risk-adjusted discount rates and explicit assessments of climate THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 123 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS uncertainties can extend CBA. However, many climate impacts are subject to deep uncertainty and cannot be effectively incorporated within CBA, suggesting it should be supplemented by other methodologies. Develop new decision tools that incorporate deep uncertainty into asset appraisal Appraisal techniques such as Real Options Analysis (ROA) and Robust Decision-Making (RDM), which is specifically adapted to situations in which no probabilistic information exists, offer complementary approaches to CBA. Source: adapted from ITF (2016). The issue of adapting transport infrastructure and services in response to climate risk has been the subject of substantial research over more than a decade. The European Union has been engaged with this agenda since publishing its 2009 White Paper Adapting to Climate Change: Towards a European Framework for Action (EU, 2009).68 Its 2014 implementing regulation (215/2014)69 sets out general methodological provisions considering climate change in transport projects submitted for EU financing under the European Regional Development Fund or the Cohesion Fund. The 2018 report Climate Change Adaptation for Major Infrastructure Projects (EC, 2018) reviews available resource materials to support infrastructure project developers’ consideration of climate change adaptation. It identifies good practices in adapting to climate change, drawing on the experiences of national authorities and research institutions. Figure 18. A framework for incorporating climate change adaptation in transport infrastructure planning Source: PIARC (2015). In developing its climate resilience strategies, Estonia should have regard to both relevant EU-published materials and requirements, and the implementation frameworks prepared by a number of individual countries and international organisations. Figure 18 provides a relevant example of a framework developed by the World Road Association for use by road authorities. The framework serves to guide road 124 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS authorities through the process of identifying relevant assets and the risks they face from climate change. It also aids with the incorporation of adaptation responses and assessment findings in decision-making. Figure 19. The United States Government’s Federal Highway Administration vulnerability assessment and adaptation framework Source: FHWA (2018). Another widely adopted set of tools to assist in climate resilience analysis and planning are those developed by the United States Government’s Federal Highway Administration (FHWA). Figure 19 summarises the FHWA’s Vulnerability Assessment and Adaptation Framework. As with the PIARC framework, the central concern of the FHWA framework is the assessment and prioritisation of risks and the identification of vulnerable features and assets. The FHWA framework addresses both analytical and modelling requirements and the need for stakeholder feedback. The FHWA approach also provides a suite of supporting analytical tools including:  a climate data processing tool  a matrix that documents the sensitivity of different transport infrastructure assets to a range of climate impacts THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 125 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS  a guide to assessing criticality in transport adaptation planning  a Vulnerability Assessment Scoring Too (FHWA, 2018) Taylor (2018) notes that both the PIARC and FHWA frameworks have found numerous international applications, with the latter also used extensively by US state transport agencies. Other equivalent frameworks have also been published by Standards Australia (2013) (an ISO member organisation) and Transport for New South Wales (an Australian sub-national transport authority). Estonia should adopt a consistent approach to adaptation across all types of transport infrastructure. Given this and the need to ensure that adaptation strategies are incorporated into the National Transport and Mobility Master Plan, the MEAC’s Strategic Policy Division should take the lead in this process. The Technical Resource Centre could identify specific expertise requirements and manage contractual arrangements to ensure that adequate specialist resources are available as inputs to the process. As highlighted by FHWA, stakeholder consultation should also constitute an integral element of the process of developing and implementing adaptation strategies. Enhanced consultation with foresight bodies in the development of a TTR also constitutes one appropriate mechanism for ensuring such engagement. 126 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS Notes 3 The 2017 Survey states ““The efficiency and productivity of public investment could be significantly enhanced by improvements in its management. A recent IMF paper shows that countries whose institutions have stronger public investment management have more predictable, credible and efficient investments and that strengthening these institutions could close up to two thirds of the public investment efficiency gap. In particular, good co-ordination in investment planning and a clear system for the selection and prioritisation of projects is indispensable to identifying strategic priorities and exploiting synergies across investment programmes” (OECD 2017, p. 122). 4 Section 42(1) of the State Budget Act provides that the statutes of state agencies and inspectorates are approved by the Minister. Section 42(2) sets out the required inclusions in these statutes. 5 Statute of the Estonian Roads Administration, 55/2018, S7(8). 6 A major ITF body of work on this topic (ITF, 2018) offers a comprehensive treatment on the role of private investment in transport, whether and how it could be used in the transport sector. 7 See, for example, Sections 11(1) and (2) of the TTJA Statute, which give the organisation functions relating to projects financed by EU structural funds and the initiation and management of development projects in the transport field, respectively. 8 The 2018 National Infrastructure Assessment is available here: https://www.nic.org.uk/wp-content/uploads/CCS001_CCS0618917350- 001_NIC-NIA_Accessible.pdf. 9 Infrastructure Australia reviews and approves business cases where Federal government funds are sought by proponents to support nationally significant infrastructure projects. For an overview of the functions and operations of Australia’s independent infrastructure advisory body, see: https://www.infrastructureaustralia.gov.au/. 10 Information provided by email to ITF by the Estonian Ministry of Economic Affairs and Communications in a 31 January 2020. 11 At the outline stage the estimates need not necessarily be derived from broad quantities that would require unit prices (broad building block estimates can also be used, derived from past projects). That said, having a unit price database and a price index derived from it will still be helpful in ex-post analysis. For example, the estimates and final costs should be compared fixed prices to measure the estimation error without noise from price fluctuations). 12 This is the global estimated value that is generally published with the tender. 13 The Estonian public procurement register collects basic information from each tender in the public sector, allowing the tracking of the number of bidders per tender the difference between the estimated tender value and the winning bid etc. 14 Into how many contracts should a major project be broken down and where should the boundaries between them lie, i.e. which project activities should be in which project. 15 The delivery model concerns, whether the project phases should be bundled or not (e.g. are Design and Build separate phases or procured as a single contract) and whether the project is based on adversarial principles (i.e. price competition dominates the bidding process) or collaboration. 16 In case of interest Estonia could organise an expert visit at the Belgian Department for Mobility and Public works, who’s in charge of the local public works unit price database. 17 A rare example of a systematic approach to ex-post analysis come from France, which has a law that makes an independent audit of CBA mandatory above certain values and requires large projects reserve a portion of their budgets for the establishment of transport observatories in major projects – small teams, which are employed to collect data on ex-post performance). In the UK the Highway company pursues and ex-post analysis of both the CBA and procurement outcomes for all major road schemes (the POPE programme https://www.gov.uk/ government/organisations/highways-england/about/research#post-opening-project-evaluation-pope). 18 There is no universal standard on how to qualify complexity, but there are multiple approaches available. One was applied in the FHWA (2016) study. 19 https://www.gov.uk/government/publications/transport-infrastructure-efficiency-strategy. 20 “When high roads, bridges, canals, &c. are in this manner made and supported by the commerce which is carried on by means of them, they can be made only where that commerce requires them, and consequently where it is proper to make them.” 21 https://www.theguardian.com/uk-news/2018/oct/29/hammond-abolishes-pfi-contracts-for-new-infrastructure-projects. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 127 CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS 22 A PPP can also spread out demand risk over time, by varying the concession duration in a Least Present Value of Revenues model, developed by Engel, Fischer, and Galetovic (2020). Theoretically, PPPs could also capture the same risk diversification possibilities as a state-owned road company, the limit being that very large PPP contracts limit the number of firms that are able to compete, undermining the competition for the PPP contract and thereby introducing both deadweight losses and unwarranted transfers from public to private sector. 23 https://www.eib.org/epec/. 24 https://pppknowledgelab.org/. 25 https://www.gihub.org/. 26 In practical terms the state would then prepare two sets of financial statements. One for the European Union and one for the Estonian public and international financial markets. 27 https://library.pppknowledgelab.org/documents/5749. 28 One example is here: https://www.eib.org/epec/g2g/i-project-identification/11/index.htm. 29 Induced demand refers to a phenomenon that increasing road capacity leads to an increase in traffic volumes, i.e. increases in roadway capacity encourages more people to drive, thus failing to improve congestion. A1994 report developed by the Standing Advisory Committee for Trunk Road Assessment (SACTRA) in the United Kingdom provided an important reference on evidence of induced demand. 30 Information provided in a 16 October 2019 presentation by Elron CEO Merike Saks to the ITF. 31 Scenarios are built under the assumption that alternative fuel technologies account for roughly 60% of new passenger car purchases in 2050 (following the IEA 2DS) and fuel-efficiency improves in line with European standards. 32 While farebox revenues are the most critical and stable revenue source, full operational costs in public transport are never recovered in most cases. For instance, in London, 65% of operational costs are covered by ticket sales; in Stockholm 52% of costs are covered by ticket revenue. 33 The High-Level Commission on Carbon Prices recommended shadow prices in the range of EUR 37 to EUR 74 for 2020 rising to EUR 72 to EUR 144 by 2050 (all in constant 2017 prices). See N. Stern and J. E. Stiglitz (2017). 34 The relevant information is published on www.vrachtwagenheffing.nl. 35 https://www.dw.com/de/lkw-maut-gilt-jetzt-auf-allen-bundesstra%C3%9Fen/a-44476287. 36 The other ports that are part of the port of Tallinn group include: Paldiski South Harbour, Paljassaare and Saaremaa. 37 There are no official studies underlying these informal projections. Stakeholders base their expectations on the current market environment. 38 See https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_53469. 39 The state currently receives between one and two million euros annually in income tax on the wages of crew members of cargo ships. See https://www.baltictimes.com/estonian_parlt_committee_backs_exempting_seamen_s_pay_from_income_tax/. 40 See https://www.mkm.ee/en/news/estonian-merchant-fleet. 41 In the context of studies on potential fixed links between the mainland and islands, the Road Administration commissioned user satisfaction surveys in 2012. For example, 94% of respondents experienced improvements on the Kiuvatsu-Virtsu ferry route between 2009 and 2012. See https://www.mnt.ee/et/tee/saaremaa-pusiuhenduse-arendamine#tab-0. 42 There are only three shipping companies in Estonia which are able to provide the necessary service quality. For smaller islands, the volume of service is so small that companies from outside Estonia are not interested in bidding. The Road Administration is currently choosing contractors for ferry services for the Rohuküla-Sviby, Kihnu-Munalaid and Sõru-Triigi lines. The total annual capacity of the three lines is less than 100 000 km. The Public Transport Act allows to enter into direct contracts for lines of less than 300 000 annual km. 43 Maritime security standards in Estonia are perceived as more burdensome than in other EU countries. The strong security culture of the Estonian maritime administration could be explained by the dramatic sinking of the “Estonia” in 1994. Maritime stakeholders in Estonia recommended adopting similar requirements as in other Nordic countries that are based on risk analysis. 44 In this context, entry costs are high and there is only a small second hand market for ferry vessels. 45 See https://www.portoftallinn.com/news?art=1131. 46 See https://www.portoftallinn.com/news?art=1133. 47 The scheme is put in place by the port. The state does not regulate charges imposed by ports as it currently sees no need for intervention. Managing port-based incentive schemes are not particularly burdensome in terms of efforts and human resources, as a survey of ports carried out for the European Commission showed (COGEA, 2017). The vast majority of environmental port schemes in Europe are based on compliance 128 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS with environmental indexes or certifications (e.g. Environmental Ship Index, ESI). This limits implementation, monitoring and managing workload for the ports. 48 See https://www.environmentalshipindex.org/Public/Home. Some caveats are attached to using the Environmental Ship Index, including possible irregularities on the self-reporting of ship-owners. For a larger discussion, see ITF (2018). 49 See https://www.ts.ee/wp-content/uploads/2019/12/Tasud_puhas_010120_eng.pdf. 50 Currently, it is possible to use direct connections from wind parks to power electric ferries only on the mainland. It appears unlikely that the wind park would provide 100% service reliability, e.g. when wind is low. This requires a connection to the larger grid and the possibility to use diesel fuel on a hybrid ferry. The first pilot hybrid ferry was launched on 17 March 2020. The government estimates that the electrification of main ferry lines (to connect mainland-Saaremaa and mainland-Hiiumaa) would cost around EUR 27 million, out of which EUR 4 million would go to the necessary infrastructure (cables, charging infrastructure including improved cabling for connecting the ports with the main grid on the islands). Around 80% of the total investments into electrification of domestic maritime transport will be supported by the State. Current obstacles to integrate wind power to the national grid concern interferences between defence capabilities (Estonian Defence Forces radars) and the locations of wind parks. This information was provided to the ITF by the Estonian Ministry of Economic Affairs and Communications. 51 See https://www.trafa.se/sjofart/sjofartsstodets-effekter-2018-8987/. 52 Currently, a resident is a person whose principal residency is registered on a qualifying Estonian island as of 1 January. Instead of a specific date, residency should be made conditional on a minimum period of residency (e.g. at least eight months per year). 53 In ACI Europe’s connectivity rankings, Tallinn Airport is compared against other European airports that serve fewer than five million passengers per year. The full methodology behind the connectivity indices is detailed in the report (ACI Europe, 2019). 54 ACI’s Airport Service Quality (ASQ) provided survey data to Tallinn Airport upon request. 55 https://www.ecaa.ee/en. 56 https://www.aci-europe.org/policy/connectivity.html. 57 https://www.riigikogu.ee/en/foresight/work-foresight-centre/ and https://www.riigikantselei.ee/en/research-and-development-council. 58 Responsibility for facilitating the everyday work of the permanent committees lies with the policy advisers of the respective ministries. Ad-hoc committees can be established to complete specific tasks. 59 https://eldis.org/organisation/A5678. The 2001 study of Estonian innovation policy completed for the European Union is found here: https://ec.europa.eu/docsroom/documents/2986/attachments/1/translations/en/renditions/native. 60 Indeed, this lack of co-ordination was even said to arise, on occasion, within the same Ministry. 61 A contextual factor that may help to explain this significant gap is the conflict between the desire to deliver a future transport system that reflects the national-level vision of Estonia as digital innovation leader and the need to address legacy issues of important gaps in transport infrastructure provision and maintenance. 62 https://ec.europa.eu/digital-single-market/en/pre-commercial-procurement. 63 https://news.err.ee/1086432/amendments-to-traffic-act-favor-electric-scooters-rather-than-restrict-use. 64 In addition, the municipal governments of Tallinn and Tartu are members of ITS Estonia. https://its-estonia.com/en/its-estonia-en/. 65 https://ec.europa.eu/info/research-and-innovation/research-area/transport/stria_en. 66 https://www.infrastructure.gov.au/transport/land-transport-technology/office-of-future-transport-technology.aspx. 67 For more information on this programme, see: https://www.transport.govt.nz/multi-modal/keystrategiesandplans/strategic-policy- programme/regulation-2025/. 68 For key resources on this issue see: https://climate-adapt.eea.europa.eu/eu-adaptation-policy/sector-policies/transport. 69 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32014R0215. 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Tallinn Airport (2020), “Destinations”, webpage, https://www.tallinn-airport.ee/en/flight- info/destinations/# (accessed on 29 April 2020). Vilnius Airport (2020), “Flight map”, https://www.vilnius-airport.lt/en/before-the-flight/flights- information/flight-map (accessed on 29 April 2020). Section 2.10. Department of Transport (2019), “Future of Mobility: Urban Strategy”, United Kingdom Government, London, March 2019, https://assets.publishing.service.gov.uk/government/uploads/system/uploads/ attachment_data/file/846593/future-of-mobility-strategy.pdf. EU (2009), “Adapting to Climate Change: Toward a European Framework for Action”, White Paper, European Union, Brussels, https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX: 52009DC0147&from=EN. European Commission (2011), “Roadmap to a Single European Transport Area — Towards a competitive and resource efficient transport system”, COM(2011), 144 final, https://eur-lex.europa.eu/legal- content/EN/ALL/?uri=CELEX%3A52011DC0144. 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Government of Estonia (2017), “Climate Change Adaptation Development Plan until 2030”, Ministry of the Environment, Republic of Estonia, https://www.envir.ee/sites/default/files/national_adaptation_ strategy.pdf. 138 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 2. ASSESSMENT OF KEY TRANSPORT POLICY AREAS ITF (2016), Adapting Transport to Climate Change and Extreme Weather: Implications for Infrastructure Owners and Network Managers, ITF Research Reports, OECD Publishing, Paris, https://doi.org/10.1787/ 9789282108079-en. ITF (2019), Regulating App-based Mobility Services: Summary and Conclusions, ITF Roundtable Reports, No. 175, OECD Publishing, Paris, https://doi.org/10.1787/94d27a3a-en. New South Wales Government (2016), “Future Transport Technology”, Roadmap 2016, Transport for New South Wales, Sydney, https://future.transport.nsw.gov.au/sites/default/files/media/documents/ 2018/Future-Transport-Technology-Roadmap_2016__.pdf. New Zealand Government (2016), “Regulation 2025: Scenarios Summary and Key Findings”, Ministry of Transport, August 2016, https://www.transport.govt.nz/multi-modal/keystrategiesandplans/strategic- policy-programme/regulation-2025/. OECD (2018), “OECD Regulatory Policy Outlook 2018”, OECD Publishing, Paris, https://www.oecd.org/ gov/regulatory-policy/estonia-country-note-regulatory-policy-2018.pdf. OECD (2020), “Global Conference on Governance Innovation: Towards Agile Regulatory Frameworks in the Fourth Industrial Revolution”, Summary record from the 13-14 January 2020 conference, OECD, Paris, https://www.oecd.org/gov/regulatory-policy/global-conference-on-governance-innovation- summary-record-2020.pdf. PIARC (2015), “International Climate Change Adaptation Framework for Road Infrastructure”, Report 2015RO3EN, World Road Association, https://www.piarc.org/en/order-library/23517-en- International%20climate%20change%20adaptation%20framework%20for%20road%20infrastructure. PIARC (2016), “Transport Strategies for Climate Change Mitigation and Adaptation”, Report No. 2016R25EN, World Road Association, https://www.piarc.org/en/order-library/25772-en- Transport%20Strategies%20for%20Climate%20Change%20Mitigation%20and%20Adaptation. Standards Australia (2013), “Climate Change Adaptation for Settlements and Infrastructure – A Risk Based Approach”, Australian Standard AS5334-2013, Standards Australia, Sydney, https://infostore. saiglobal.com/en-au/standards/as-5334-2013-119943_saig_as_as_251367/. Taylor, MAP (2018), “Including Climate Change Adaptation in Transport Systems Management”, in Proceedings of the 4th Practical Responses to Climate Change Conference, “Climate Adaptation 2018: Learn, Collaborate, Act”, 8-10 May 2018, Engineers Australia, Melbourne, https://search.informit. com.au/documentSummary;dn=678866432856721;res=IELENG (accessed 24 June 2020). Transport for New South Wales (2017), “TfNSW Climate Risk Assessment Guidelines”, Report 9TP-SD- 081/1.0, Transport for New South Wales, Sydney, https://www.transport.nsw.gov.au/sites/default/ files/media/documents/2017/tfnsw-climate-risk-assessment-guideline-9tp-sd-081-1.pdf. United Kingdom Government (2019), “Future of Mobility: Urban Strategy”, Policy Paper, Department for Transport, March 2019, https://assets.publishing.service.gov.uk/government/uploads/system/uploads/ attachment_data/file/846593/future-of-mobility-strategy.pdf. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 139 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Chapter 3. Transport policy objectives and measuring progress Inclusive and resilient transport policy requires setting legitimate policy objectives, measuring them accurately and reporting on them regularly. The systematic manner in which objectives can be measured and then used to clearly report on the improvements or setbacks being made to people’s lives in a relatable manner is a substantial step toward building trust and accountability between government and citizens. 3.1. Defining transport policy objectives A more established method of assessing transport policy and monitoring its progress would be helpful for Estonia. The approach taken in the last Estonian transport policy document was the result of ad-hoc internal consultations. No reporting procedures were included. There is a wealth of international research and experience, where indicators have been developed to aid analysis or to enable the communication of policy progress to the public. Different options exist for developing indicators that can serve both purposes. This is true both for international comparisons (e.g. the TERM framework70, the SUSTrans Index71, COST 35672, ITF Transport Benchmarking Indicators, OECD Indicators for the Integration of Environmental Concerns into Transport Policies73) and national policy documents (e.g. the UK National Infrastructure Assessment, the Departmental Plan developed by Transport Canada, the German 2030 Federal Transport Infrastructure Plan, etc.). The first step is to identify the relevant transport policy objectives that the indicators ought to reflect. Policy objectives relate to more than one initiative and often involve international agreements as well as national decision-making. The United Nation’s 2030 Agenda for Sustainable Development is one such initiative. Agreed in 2015, it defines the Sustainable Development Goals (SDGs), which incorporate several targets directly or indirectly linked to transport. A key objective is that of providing “access to safe, affordable, accessible and sustainable transport systems. The European Commission outlined its European-wide transport policy objectives in 2011. There are ten objectives included in the White Paper “Roadmap to a single European transport area” (EC, 2011), focusing on the EU transport system as a whole. The objectives provide a framework for assessing member states’ transport systems. The White Paper includes a mix of specific, quantitative targets (e.g. to make greenhouse-gas emissions 60% lower than 1990 levels by 2050 and 50% reduction in the share of conventionally-fuelled cars in urban transport by 2030) and more qualitative objectives (e.g. “A fully functional and EU wide multimodal TEN-T “core network” by 2030”. There is no uniform approach to transport policy objectives at the national level. Some countries set cross- modal objectives (e.g. in Norway transport policy objectives are defined for the transport sector as a whole74). In others, the strategic guidance is developed separately for different sectors or layers. For example, in the United Kingdom, there is a National Infrastructure Assessment for all sectors, including transport, and then there are separate “execution” strategies for individual parts of the transport sector.75 Sub-sector strategies exist in Spain and France, including separate logistics strategies. From an institutional point of view, not all countries define their transport strategies on a national or federal level. In Belgium, for instance, there is a consultation committee of mobility Ministers from the three main regions (Flanders, 140 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Wallonia and Brussels), who do not refer to the central state. Similarly, in Australia and Canada, provinces and states have a high degree of autonomy in defining transport policies. There is also substantial diversity in the objectives that countries pursue. For example, French transport policy priorities are the transition from fuel use to renewable energy, adopting new mobility options made available by advancing technologies, the rehabilitation of the infrastructure network, and a focus on users and transport “for everyday life” (Ministère de la Transition écologique et solidaire, 2018). In 2016, the Spanish government presented a Roadmap for transport policy for the next four years. It identifies fundamental objectives as the restructuring of the territory, social cohesion and equal opportunities (Ministero de Fomento, 2018). Following those objectives, the Spanish Ministry for Public Works defined a new Innovation Plan for Transport and Infrastructure, which includes four pillars:  user experience (including mobility-as-a-service)  smart platforms (including freight and logistics platforms)  smart routes (including road and railway digitalisation)  energy efficiency and sustainability. 3.2. Defining indicator frameworks A variety of rationales are adopted in developing transport indicator frameworks. There is no single standard, either in the expert literature or in national policy documents. Policy documents tend to group indicators according to high-level objectives, which represent broad dimensions of transport policy. For example, the Departmental Plan 2018-19 of Transport Canada (Garneau, 2018) contains three dimensions, and corresponding annual indicators and targets:  a safe and secure transportation system  a green and innovative transportation system  an efficient transportation system. The US Department of Transportation releases Annual Performance Plans that include performance indicators grouped under the four strategic goals of safety, infrastructure, innovation and accountability. Each of the strategic goals contains specific objectives under which indicators are grouped and presented for each mode separately, including a baseline and target values for the two following years (U.S. Department of Transportation, 2018). Academic literature often cites the allocation of indicators to the three pillars of sustainable development – economic, environmental and social (e.g. Dobranskyte-Niskota et al., 2009; Joumard and Gudmundsson, 2010; Litman, 2019). In 2015, the Technical University of Dresden developed a useful set of indicators for sustainable mobility for the German Environmental Agency. First, they identified the most important action points to achieve sustainable mobility development. Second, the researchers identified indicators according to the selected fields of action. This was followed by an evaluation of the identified indicators (Umweltbundesamt, 2015). The three pillars of sustainable development are an appropriate starting point for Estonia to generate indicators, given that sustainable mobility is important to both Estonian and EU transport policy. Adding to this, the European Conference of Ministers of Transport (2004) defines a sustainable transport system as one that is accessible, safe, environmentally friendly, and affordable. To assist Estonia in the definition THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 141 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS of a transport indicator framework, the ITF defined objectives that correspond to this definition, but added an economic dimension and excluded safety. Whilst safety is a commonly used transport policy objective among ITF countries, it was excluded from the scope of this exercise, as agreed with the Estonian authorities. Based on a review of the options and consultation with the Estonian authorities, the following objectives were selected to help track the performance of the transport system: 1. An environmentally sustainable transport system [ENVIRONMENT] Transport produces a range of environmental effects, including air and noise pollution, contributing to climate change and impacts on eco-systems due to construction (habitat fragmentation or destruction) or spills and accidents. The extent of the environmental impact depends on transport modes, types of fuels, energy efficiency, and the rate of growth of transport demand. Transport policies and the associated incentive regulations have a strong influence on the environmental impact of transport. 2. An inclusive transport system [SOCIAL] Social factors can drive transport-demand patterns, for example, household consumption, time spent on leisure activities, urban sprawl and density patterns, socio-economic and socio-demographic changes, etc.. On the other hand, transport facilitates access to goods, jobs, social activities, education, and health services. In addition, transport can generate social costs (accidents, pollution and congestion) and transport policies (e.g. taxes, subsidies, prices) can have important social equity effects, with impacts spread unevenly among population and income groups. 3. A high quality, reliable and efficient transport system [ECONOMIC] The quality, reliability and efficiency of the transport system can have large impacts on the competitiveness of an economy. Different economic forces shape transport patterns. These include the type and extent of economic activity and related production patterns, land-use patterns, infrastructure, trade flows, and technological change. For example, freight transport is closely linked to production patterns and is influenced by developments in international trade, consumer demand and the use of technologies. Institutions can affect private sector competitiveness through their transport policies. These objectives are deliberately kept abstract. The intention is to provide a conceptual basis only that focuses on a specific area of attention that informs the choice of indicators. The policy analysis of Estonia’s transport sector provides recommendations regarding more specific objectives that should be adopted pursuant to an appropriate political and consultation process. These should be complemented by the EU objectives to form the future transport policy in Estonia. Combined, these economic, social, environmental feed into an overall objective of sustainable development. The objectives are straightforward and relatively easy to communicate. To give a tangible sense of progress and improvement, the next step consists in attaching suitable indicators to these objectives. 3.3. Developing a transport policy indicator framework for Estonia The ITF developed a transport policy indicator framework for Estonia. Over 200 possible indicators were collected and a literature review conducted that questioned how the transport system, policy status or progress could be best measured and communicated took place to make this possible. The criteria that applied to the selection of indicators is in the supporting analysis (see Annex 1). The selected indicators were identified using the three objectives numbered above. 142 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Defining a transport policy indicator framework requires a balance in terms of measures that are practical to evaluate, tangible to the broader public, and at the same time still as representative of the performance of the transport sector as possible. The main audiences for the broad transport indicators will be the public and high-level decision-makers. In order to be relevant and meaningful to them, the size of the indicator set and the level of detail it contains should be limited (OECD, 1999). If accessible communication is the focus, then brevity and clarity must take priority over comprehensiveness. Long lists of indicators are likely to confuse the reader and reduce engagement. A drawback of a short set of indicators, however, is that due to its simplification and adaptation to user needs, the indicators may not meet strict scientific standards and may not necessarily fit within a direct causal chain with the objective that is associated with it. The number and suitability of indicators are limited to the availability of good quality and comparable data. In the case of Estonia, a pragmatic approach was adopted, seeking to identify the best readily available data that is also relatively easy to understand and interpret. This led to the proposal of the following key characteristics for successful transport indicators. They should be: 1. expressed in terms of outcomes, to which users can directly relate 2. straightforward and readily communicated, avoid composite measures and be easy to imagine and interpret 3. easy to remember, Millers Law (Miller, 1956) states that no more than 7 (+/-2) indicators or concepts should be used per sub-category or in aggregate. After these conditions have been satisfied, additional constraints on the characteristics of (transport) indicators should be imposed, which are drawn from a review of indicator criteria: 4. data to populate the indicators is easy and cost-efficient to collect, ideally readily available 5. Indicators should allow comparisons. Data collected should be clearly defined and standardised to facilitate comparisons between various jurisdictions, times and groups. For example, an indicator of the “Number of people with good access to food shopping” should define the key terms “good access” and “food shopping”. 6. Indicators should not be overly rigid. In other words, they should contain values that do change (e.g. number of international agreements, number of airports). Five years was chosen as the threshold for this purpose in the case for Estonia. With regard to the first three criteria, it is possible that in one case the user will be the passenger and in another, the user will be a firm. Priorities in these two cases will differ, hence these groups are differentiated in the framework. Speed and price are priorities for passengers. For goods (firms) lower travel time variability – or reliability – is more important than speed. Some indicators only affect user experience indirectly. For this reason, supporting functions like network state of repair, institutional setup, or operational efficiency of infrastructure managers are not represented in the indicators. The ministry and relevant authorities nonetheless need to track these measures, as they are important to monitor the performance of the transport system. The ITF has identified over 220 indicators76 that relate to the objectives initially outlined. These indicators contain diverse levels of analysis, from trends and changes in response to a policy to economic impacts and performance evaluations. Some measure inputs (e.g. annual investments in infrastructure) and others measure outputs and final outcomes (e.g. congestion levels, emissions, user satisfaction). Among these, some are quantitative and others more qualitative, requiring a diversity of measuring techniques. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 143 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Following the initially outlined criteria, the ITF selected a sample set of indicators, taking theoretical and empirical links between transport and economic development into account, and prioritised those indicators for which these links are strongest (notably accessibility and connectivity). The ITF consulted with the Estonian authorities and European Commission counterparts as there were a range of possible solutions and a considerable stock of indicators available. The sample set of indicators was then adapted to suit Estonia’s circumstances. Two strata of indicators were defined as a result: cross-modal indicators and mode-specific performance measures. The goal per stratum is to ensure that each of the three transport policy objectives is represented by at least one indicator. It is assumed that any single group of users will be primarily interested in their preferred mode and its performance. For each user group there should also be at least one indicator representing each of the following dimensions:  accessibility/connectivity  affordability  emissions  efficiency  safety.77 Following the process above, the ITF elaborated the selected indicators in two tables below. The first (Table 4) represents the most abstract level and includes aggregate indicators for passengers and freight. The second (Table 4), reports indicators particular to individual user groups. The indicator categories in the third column reflect the performance dimension to which they relate. The indicators selected that appear there differ across the different user groups. This is the result of multiple factors. For example, the same type of indicator is not equally relevant across all user groups, data may not be available for all user groups or Estonian authorities may have deemed a different indicator better represented as a specific dimension. The greyed out indicator content in the Description column denotes ITF’s preferred choice, which in the case of Estonia currently is not possible due to lack of data. The selection of these indicators is not free from trade-offs. Several indicators can represent more than one dimension within the same framework and multiple causal chains can interact and interconnect. For example, a competitive transport system is often associated with activity growth, which may work against existing sustainability goals. Likewise, cost-effective operations may not always be the “greenest”. Green transport may not correspond to the most affordable transport. Often, sustainability in transport tends to embrace the efficiency concept: energy efficiency, land efficiency (e.g. smart growth), resource efficiency, operational efficiency, efficiency in inter-modality, etc. In contexts of increasing transport demand however, countries will need to rethink their strategies to limit adverse effects on the environment. A key measure of how well the Estonian transport system fares will be its ability to deal with these trade-offs and find solutions that address both growing transport demand and the need to protect the environment and climate. A critical caveat to the indicators below is that improvements in their values can only be maintained if the service producers (infrastructure managers and service operators) remain economically viable. Improvements in the indicators should not be sought at the expense of reduced cost recovery78 by (and hence viability of) the service producers. The mode-specific indicators serve to report the relative performance of each mode separately. They cannot be used to suggest that more investment should go to one mode rather than another. These 144 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS decisions require detailed appraisals of alternatives that cannot be satisfied by observing a limited set of high-level indicators. The indicator tables below should satisfy the need to communicate transport policy progress to the public. The Estonian authorities need to choose how to operationalise this tool. For example, will this be in an annual progress report or will there be homepages for the indicators of individual user groups providing additional context to the readers? Because of their user/communication orientation, the selected indicators do not provide the detail public servants within the Ministry of Economic Affaris and Communication (MEAC) need to monitor and understand the performance of the executive bodies (i.e. infrastructure companies and/or service operators). A longer, more detailed list of more specific indicators is necessary to monitor performance across individual sectors, geographic units, or income groups. These will depend on more specific objectives and go beyond the scope of task for the ITF. However, the literature and indicator frameworks reviewed for this report will be a useful starting point for the Estonian authorities. Estonian authorities will need to consider questions concerning the development of indicators such as:  Will the development of indicators be linked to a public consultation process?  Will the indicators be embedded within a broader analysis of key drivers for change or a causality chain?  Who will be the actors responsible for the final selection and publication of the indicators?  Will the indicators be based on primary data collection or existing data collections?  How will the indicators be sustained and funded over time? Estonia also needs to engage itself with EU-wide transport objectives. Progress towards these can be reflected in the indicators below, as well. Table 5 in Annex 3.1. maps which indicator addresses which EU objective. Table 3. Selected indicators used to measure and report progress made on Estonian transport policy Transport Indicator policy Indicator Description category objective General Transport Policy Overall CO2 emissions passenger and freight Emissions 1 1. CO2 Emissions* transport Injuries and deaths per 1000 inhabitants Safety 2,3 2. Transport related injuries (Walking/Cycling, Road, Rail, Air, Sea) a. Passenger transport (all modes) Average time to reach the international market Accessibility 3 1. Time to main markets** by fastest transport option Number of jobs accessible by car and by public Accessibility 2,3 Urban accessibility transport in 30 minutes in all functional urban 2. areas*** Average travel time of urban trips Number of jobs accessible by car and public Accessibility 2,3 3. Inter-urban and rural accessibility transport within 60 minutes in rural areas Average travel time of inter-urban trips Passenger kilometre (pkm) by transport mode General 1,2,3 4. Urban passenger mode share (walking, cycling, bus, rail, car) THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 145 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS 5. Inter-urban passenger modal share Pkm by mode (car, coach, rail, air, sea) General 1,2,3 Energy consumption in kWh per pkm (global Efficiency 1,3 6. Fuel efficiency / CO2 emissions average) CO2 emissions per pkm % of total income spent on travel for all modes Affordability 2,3 7. Affordability for users for the bottom quartile income group**** Average cost of a trip b. Freight (all modes) Average time to reach the international market Accessibility 3 1. Time to main markets by fastest transport option 2. Modal shares of freight transport % of tonne-kilometre (tkm) by mode General 1 % of on-time arrivals/time variability Reliability 3 3. Logistics reliability (to the borders; to the sea port) Energy consumption per tkm (global average Efficiency 1,3 4. Fuel efficiency / CO2 emissions and by mode) CO2 emission per tkm 5. Affordability EUR/tkm (global average and by mode) Affordability 3 * See endnote 1 on why we do not use CO2 equivalents and chose a simpler approach. ** Time to main markets indicators represent average time to reach the closest concentrations of GDP (i.e. countries with a large economy). It solves the problems of distance and geographic positioning of countries at the same time thus allowing benchmarking between different countries, regardless of whether they are situated close to large economies or further away. Annex 3 provides more detail. *** Since there is no existing database on the job localisation, the accessibility indicator can be replaced by the average travel time of trips. This also allows to estimate travel time savings of specific policies, that can be also used in cost-benefit analysis. **** In the framework of this project, the indicator that was estimated from the model is the average cost of a trip. The % of income spent on travel is following the same relative change. Note: The numbers in the Transport policy objective column correspond to: 1. An environmentally sustainable transport system (environment); 2. An inclusive transport system (social); 3. A quality, reliable and efficient transport system (economic). 146 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Table 4. Mode-specific selected indicators used to measure and report progress made on Estonian transport policy Indicator Transport policy Indicator Description category objective a. Road private passenger (car and taxi) Average time to reach the Accessibility 3 1. Time to border by road international market by car (including depart border procedure) Jobs reachable within 30 minutes by Accessibility 2 car in cities 2. Urban accessibility Average travel time of road urban trips. Jobs reachable within 60 minutes by Accessibility 2 Inter-urban and rural car in rural areas 3. accessibility Average travel time of road inter-urban trips. Ratio of average speed/free flow Reliability 3 4. Congestion speed1 5. Fuel efficiency Energy consumption (in kWh per tkm) Efficiency 3 6. CO2 emissions CO2 emissions per vkm Emissions 1 7. Average fleet age Average age of registered vehicles Emissions 1 Expenditure on private vehicles, % of Affordability 2 Affordability of private household income for bottom 8. vehicles quartile of the population Average travel cost of car trips. b. Walking/Cycling (Non-motorised modes) Number of amenities accessible within Accessibility 1,2,3 1. Accessibility on foot 15 minute walk 2. Bike and foot Mode share of active trips in the city General 1,2,3 Total length of bike network (km) Quality 1,2,3 3. Availability of bike lanes separated from road traffic in large cities. 4. Availability of bike parking The number of bike parking places Quality 1,2,3 Public Transport (Bus, Tram, c. Rail) Average time to reach the border by Accessibility 3 Time to border by public PT/fastest mode (including depart 1. transport border procedure) through land borders Jobs reachable within 30 minute by Accessibility 2,3 public transport 2. Urban accessibility Average travel time of public transport trips. Share of population that has public Accessibility 2,3 3. Public transport coverage transport stops within 400m radius (with more than six services per hour) Jobs reachable within 60 minutes by Accessibility 2,3 4. Rural accessibility public transport 1 Congestion is not a very present issue in Estonia compared to other European countries. The models developed for this project does not take it into account. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 147 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Indicator Transport policy Indicator Description category objective Average travel time of public transport trips Expenditure on public transport, % of Affordability 2,3 household income for lowest quartile 5. Affordability income group Average travel cost of public transport trips. Energy consumption (in kWh per Efficiency 3 6. Fuel efficiency pkm) 7. CO2 emissions Emissions per vkm Emissions 1 On-time performance by mode: % of Quality 2,3 8. Average delay buses/tram/trolleybuses/rail arriving Reliability 3 with a five-minute delay or less Public transport priority in Length and share of dedicated Accessibility 3 9. traffic transport lanes d. Road-based freight Average time to reach the Accessibility 3 1. Time to border by road international market through land borders Ratio of the average load to total Efficiency 1,3 2. Load factors of trucks vehicle freight capacity2 3. Average delay Average vehicle speedfree flow speed Reliability 3 4. Average fleet age Average age of registered vehicles Emissions 1 5. Fuel efficiency Energy consumption (in kWh per tkm) Efficiency 3 6. CO2 emissions CO2 emissions per tkm Emissions 1 7. Affordability Cost to the shipper in EUR per tkm Affordability 3 Time required to cross international Efficiency 3 8. Border crossing efficiency border (border procedures) e. Rail-based freight Average time to reach the Accessibility 3 international market through land 1. Time to border by rail borders (excluding depart border procedure) Average rail freight operation speed Accessibility, 3 2. Rail speed Average time per tkm Efficiency Delays in delivery/On-time % of trains running on time/ % of Reliability 3 3. performance cancelled trains 4. Fuel efficiency Energy consumption (in kWh per tkm) Efficiency 3 Emissions per tkm Emissions 1 5. CO2 emissions Note: taking into account empty trains Average load of trains in tonnes per Efficiency 3 6. Average load of trains normalised train Cost to the shipper expressed as rail Affordability 3 7. Affordability revenues per tkm Time required to cross international Efficiency 3 Border crossing efficiency 8. border (Inter-operability) (border procedures) 2 This indicator can be difficult to measure and estimate. 148 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Indicator Transport policy Indicator Description category objective Airplane (passenger and f. freight) Catchment area (number of people Accessibility 3 who live within one, two and three 1. Airport accessibility hours away from Tallinn Airport – by public transport and car) Number of days per year on which Reliability 3 3. Airport or airspace congestion non-weather related disruptions occur at Tallinn Airport CO2 emissions from domestic flights Emissions 3 4. CO2 emissions per passenger g. Sea/river general 1. CO2 emissions CO2 emissions per tkm or vkm and Emissions 1 total 2. Local air pollution in port cities Emissions per tkm or vkm and total Emissions 1 Energy consumption (in kWh per tkm Efficiency 3 3. Fuel efficiency or vkm) h. Sea/river Passenger Number of direct connections to Connectivity 2,3 1. Port connectivity other ports Average time to reach port(s) Accessibility 3 2. Port Accessibility (including depart border procedure), by public transport; by car 3. Port capacity utilisation Actual vs. estimated potential Efficiency 3 Average headway + travel time to get Accessibility 2 4. Island remoteness to the mainland Expenditure on public transport, % of Affordability 2,3 5. Affordability household income for bottom income quartile Delays on domestic ferry Average delays for ferries Reliability 3 6. routes i. Sea/river Freight Average time to reach the sea port by Accessibility 3 1. Port accessibility for freight road or rail (excluding departure procedure) Percent of time a certain seaway or Accessibility 3 2. Transport availability river is ice free Number of direct connections to Connectivity 3 3. Port connectivity (I) other ports 4. Port connectivity (II) Service frequencies at ports Connectivity 3 5. Port capacity utilisation Actual vs. estimated potential Efficiency 3 6. Ship turnaround times Average time of vessels spent in port Efficiency 3 7. Train turnaround times Average time of trains spent in port Efficiency 3 Time required to cross international Efficiency 3 8. Border crossing efficiency border (border procedures) * Congestion is not a very present issue in Estonia compared to other European countries. The models developed for this project does not take it into account. ** This indicator can be difficult to measure and estimate. Note: The numbers in the Transport policy objective column correspond to: 1. an environmentally sustainable transport system (environment); 2. an inclusive transport system (social); 3. a quality, reliable and efficient transport system (economic). THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 149 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Notes 70 The European Commission, with the support of the European Environment Agency (EEA), has initiated in 1998 the development of an indicator- based transport and environment reporting mechanism (TERM). It aimed at monitoring and assessing the effectiveness of integration measures at EU level and at supporting the development of a sustainable transport system. Indicators are structured according to the following issues: environmental consequences of transport; land use and access; transport demand and intensity; transport supply; price signals; and transport efficiency. 71 The SusTrans Index is a five-dimensional index of sustainable transport, including an environmental dimension, economy, a social dimension, technology and institutions. The index contains 55 indicators of which only 32 were measured due to data availability issues. It is computed following a distribution of weights using the EWA (equal weight distribution) approach. Each sustainability dimension is represented by the corresponding aggregated index (e.g. economic transport sustainability index, social transport sustainability index, etc.), which is composed of another 3-5 equally weighted sub-dimensions, each containing a number of specific indicators. 72 COST 356 (2010), “Towards A Measurable Environmentally Sustainable Transport” (http://cost356.inrets.fr) developed indicators for environmentally sustainable transport. Final report: http://cost356.inrets.fr/pub/reference/reports/ Indicators_EST_May_2010.pdf. 73 Along other OECD sets of sectoral indicators, the OECD (1999) has developed a set of transport-environment indicators, see http://www.oecd.org/officialdocuments/publicdisplaydocumentpdf/?doclanguage=en&cote=ENV/EPOC/SE(98)1/FINAL. 74 See https://www.regjeringen.no/contentassets/7c52fd2938ca42209e4286fe86bb28bd/engb/pdfs/stm201620170033000e-ngpdfs.pdf. 75 For sector specific strategies see for example the UK Road Investment Strategy: https://assets.publishing.service.gov.uk/government/ uploads/system/uploads/attachment_data/file/752066/draft-road-investment-strategy-2-governments-objectives.pdf. 76 Additional time devoted to reviewing the literature and other sources would undoubtedly yield an even greater number of indicators. Experience however, suggests that the most important and suitable indicators were accounted for. 77 Although safety is not included in this scope of work - which consists of policy analysis and modelling/scenario building - it is included here as an important category that has to be taken into account in any transport policy indicator framework. 78 The revenues are sufficient to cover all of the producer’s cost and a small (normal) profit. This will allow it to pay the workers and maintain and replace its assets, when their lifetime expires. This is not to be taken for granted in the public sector. For example, states can “borrow” temporarily from the infrastructure, by deferring maintenance or renewal. That money can then be reallocated to improve another service. However, the debt is then transferred to the future years. 150 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS References Dobranskyte-Niskota, A., A. Perujo, J. Jesinghaus and P. Jensen (2009), “Indicators to Assess Sustainability of Transport Activities: Part 2”, JRC Scientific and Technical Reports. European Commission (2011), WHITE PAPER roadmap to a single European transport area towards a competitive and resource efficient transport system. COM (2011), 144. Joumard, R. and H. Gudmundsson (2010), “Indicators of environmental sustainability in transport: An interdisciplinary approach to methods”, Les collections d l’INRETS, Recherches, A. Lauby, https://hal.archives-ouvertes.fr/file/index/docid/492823/filename/Indicators_EST_May_2010.pdf. Litman, T. (2019), “Well Measured: Developing Indicators for Sustainable and Livable Transport Planning”, Victoria Transport Policy Institute, 18 March 2019. Miller, G. A. (1956), “The magical number seven, plus or minus two: Some limits on our capacity for processing information”, Psychological review, Vol. 63(2), p. 81. Ministère de la Transition écologique et solidaire (2018), “De la diversité des politiques de transport en Europe et de leurs effets”, Bulletin de l’Observatoire des Politiques et Stratégies de Transport en Europe, No. 47, April 2018. Ministero de Fomento (2018), “Innovation Plan for Transport and Infrastructures 2018-2020”, https://www.fomento.gob.es/recursos_mfom/paginabasica/recursos/innovation_plan_20182020_1.pdf. OECD (1999), Indicators for the Integration of Environmental Concerns into Transport Policies, Working Group on the State of the Environment, http://www.oecd.org/officialdocuments/ publicdisplaydocumentpdf/?doclanguage=en&cote=ENV/EPOC/SE(98)1/FINAL. Garneau, M. (2018), Transport Canada 2018-19 Departmental Plan. Her Majesty the Queen in Right of Canada, represented by the Minister of Transport. Umweltbundesamt (2015), “Entwicklung von Indikatoren im Bereich Mobilität für die Nationale Nachhaltigkeitsstrategie“, Study carried out by the Technical University of Dresden, Faculty of Transportation Sciences. U.S. Department of Transportation (2018), “2018-19 Annual Performance Plan – Annual Performance Report”, https://www.transportation.gov/mission/budget/dot-fy-2018-2019-annual-performance-plan- and-fy-2017-annual-performance-report. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 151 CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS Annex 3.1. Interaction of the indicator framework with the EU-wide transport objectives Table 5. Interaction of the indicator framework with the EU-wide transport objectives EU Overall Key EU transport related objectives In which Indicator will improvements show objective EU climate By 2050, greenhouse gas emissions from transport Fuel efficiency, reduction of fleet age, improved policy 2050 will need to be at least 60% lower than in 1990 and modal share for rail, public transport, and non- be firmly on the path towards zero. motorised modes, CO2 equivalent emissions per vkm for pax, tkm for freight EU energy The share of advanced biofuels and biogas must be CO2 equivalent emissions per vkm for pax, tkm for policy at least 1% in 2025 and at least 3.5% in 2030. freight, CO2 equivalent emissions per vkm for pax, tkm for freight, global and across user groups/modes EU Developing and deploying new and sustainable fuels Transport and propulsion systems policy white paper Halve the use of “conventionally-fuelled” cars in Urban passenger mode share, CO2 equivalent (2011) urban transport by 2030; phase them out in cities by emissions per vkm for pax, Fuel efficiency for road- 2050; achieve essentially CO2-free city logistics in based passenger and freight transport major urban centres by 2030. Low-carbon sustainable fuels in aviation to reach N/A for aviation (international aviation is outside of 40% by 2050; also by 2050 reduce EU CO2 emissions the remit of the Estonian transport policy); CO2 from maritime bunker fuels by 40% (if feasible 50%). equivalent emissions per tkm, fuel efficiency for maritime EU Optimising the performance of multimodal logistic Transport chains, including by making greater use of more policy white energy-efficient modes paper (2011) 30% of road freight over 300 km should shift to other Improvement of rail/sea mode share in mode shares modes such as rail or waterborne transport by 2030, of freight transport indicator, CO2 equivalent and more than 50% by 2050, facilitated by efficient emissions and fuel efficiency indicators per tkm, and green freight corridors. To meet this goal will global and by mode. also require appropriate infrastructure to be developed. By 2050, complete a European high-speed rail Inter-urban passenger modal share network. Triple the length of the existing high-speed rail network by 2030 and maintain a dense railway network in all member states. By 2050 the majority of medium-distance passenger transport should go by rail. A fully functional and EU-wide multimodal TEN-T Time to main markets (fastest mode), average time “core network” by 2030, with a high quality and to border for road pax and freight transport, time to capacity network by 2050 and a corresponding set of border for rail pax and freight transport; time to information services. border by public transport, airport and seaport accessibility 152 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 3. TRANSPORT POLICY OBJECTIVES AND MEASURING PROGRESS By 2050, connect all core network airports to the rail Airport and seaport accessibility network, preferably high-speed; ensure that all core seaports are sufficiently connected to the rail freight and, where possible, inland waterway system. EU Increasing the efficiency of transport and of Transport infrastructure use with information systems and policy white market-based incentives paper Deployment of the modernised air traffic These measures increase the capacity/potential (2011) management infrastructure (SESAR) in Europe by throughput of individual modes (e.g. in rail reduced 2020 and completion of the European Common safety distance between trains potentially allows Aviation Area. Deployment of equivalent land and higher frequency of trains or longer trains in the waterborne transport management systems (ERTMS, absence of infrastructure constraints). Potential ITS, SSN and LRIT, RIS)*. Deployment of the impacts therefore range from fuel efficiency/lower European Global Navigation Satellite System emissions (e.g. longer trains), reduced cost/improved (Galileo). affordability to reduction in cross-border procedures and others. By 2020, establish the framework for a European Such systems allow users to optimise their choice of multimodal transport information, management and transport mode depending on users’ priorities (e.g. payment system. speed, cost etc.). In practice, the result would be reduced cost for the users, minimised emissions impact and others. The ITF model already assumes optimal assignment so progress towards this objective would not be reflected. By 2050, move close to zero fatalities in road Transport related injuries and deaths per 1 000 transport. In line with this goal, the EU aims at inhabitants. halving road casualties by 2020. Make sure that the EU is a world leader in safety and security of transport in all modes of transport. Move towards full application of “user pays” and The application of these two principles would lead to “polluter pays” principles and private sector modal shifts and by implication reduction in engagement to eliminate distortions, including affordability, reducing transport flows and emissions. harmful subsidies, generate revenues and ensure This would be reflected in the respective indicators. financing for future transport investments. * European Rail Traffic Management System (ERTMS), Intelligent Transport Systems (ITS), SafeSeaNet (SSN), Long-Range Identification and Tracking (LRIT) and River Information Systems (RIS). THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 153 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Chapter 4. Reforms and transport policy scenarios: How progressive does Estonia want to be? The following chapter realises the third element of the Future of Passenger Mobility and Goods Transport in Estonia: Input study for the National Transport and Mobility Master Plan – the modelling of policy scenarios using bespoke tools developed for Estonia. Analysis must precede decision-making when introducing policy reforms or infrastructure plans. Chapter 2, Section 2.2. Infrastructure planning and project selection details the recommended types of modelling and appraisal that constitute this process. Transport models provide essential insights to existing transport systems, supporting infrastructure design and operational planning. They are an essential tool for strategic planning and decision-making because their outputs can identify impacts from proposed projects or policies. Today, Estonia does not have comprehensive strategic transport models and a crucial part of this project was to develop a basis for such models for the country. This chapter analyses the impacts of alternative policy scenarios for Estonia using the strategic modelling tools developed specifically for this case study. Essential indicators that track transport policy progress, such as mode share, CO2 emissions, accessibility, and affordability of transport were used to evaluate the scenario results. Three scenarios are analysed over a 30-year period from 2020 to 2050:  business as usual (BAU)  high ambition (HA)  low ambition (LA). HA and LA scenarios are potential combinations of policies based on the key reforms suggested by the ten policy area reviews in Chapter 2 and feedback from Estonian stakeholders. They provide a concise way of analysing and presenting impacts rather than reporting on each measure individually. Individual tests of measures are possible with the modelling tools. However, only select individual impacts are presented in the report in the interest of brevity. The aim of the scenarios is to shed light on possible pathways (or “what if” scenarios) and their impacts rather than to define the right path for policy makers to choose as a strategy. The scenario results, alongside all the policy recommendations, should be considered as a starting point when developing Estonia’s national transport strategy. It is important to note that these scenarios do not include all reforms or recommendations. Strategic scenario models, such as the ones developed for Estonia, model aggregate reforms while a more detailed analysis would require data or more specific models that are not yet available. There are also several recommendations, such as institutional reforms and qualitative impacts like comfort and health that cannot be meaningfully estimated using strategic transport models. The tools developed for Estonia’s strategic modelling suite simulate real-life travel behaviour in a simplified manner. They can help generate indicators and compare the aggregate impacts of several options, helping narrow the most compelling policy options. Final decisions will require further modelling, consideration of wider regional goals, accounting for political constraints, and a thorough investment appraisal. The quantitative tools and analysis from this policy review can be used as a starting point for more detailed work. They were built using the data available to The International Transport Forum (ITF) at the time of 154 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? this study, and can be improved to better represent the travel behaviour and freight patterns in Estonia as data collection and survey efforts expand. The modelling tools developed are flexible to allow for customisation of future policy measures that Estonia may wish to test. Annex 4.1 provides a brief summary of the methodology and additional details can be found in the accompanying model methodology report. 4.1. Policy scenarios to assess the impact of reforms The business as usual (BAU) scenario assumes there is no change to current transport policies. It accounts only for changes in population and GDP, and corresponding changes in trip volumes (rail freight volume is assumed to be constant in the BAU scenario). The high ambition (HA) and low ambition (LA) scenarios account for recommended policy measures but differ in the extent to which they are implemented and the timeline over which they are put in place. The HA scenario represents what could be feasible with strong political alignment, and prioritisation of the transport reforms with a focus on sustainable growth. The LA scenario represents the impact of measures if they are not implemented to their full potential, or if there is delayed implementation. These scenario definitions are based on the February 2020 workshops during which ITF received feedback from relevant Estonian stakeholders regarding the feasibility of some of the suggested policy measures. It is important to note that the scenarios are not target-based to fully meet Estonia’s economic, social or environmental targets. Sometimes adding a new measure may be more efficient than increasing the level of implementation of the modelled measures unrealistically to meet a target. The models and analysis of this study focus on realistic measures and policy scenarios as discussed with the stakeholders. High level, aggregated-transport models cannot model all possible policy measures that could contribute to these targets. Policy measures from each scenario are modelled using the applicable sector-specific model. The HA or LA results are always compared with the BAU results in the same year to ensure an accurate baseline. Further rationale for the proposed measures and examples can be found in Chapter 2. The next sections describe how the measures are modelled in each of the following transport sectors:  urban passenger travel (includes Harju County and a portion of Rapla)  national passenger travel  international passenger travel  national and international freight transport Modelling urban passenger transport policy measures Table 6 describes measures related to urban passenger transport that are included in the scenarios, and the travel characteristics they manipulate within the model. These measures represent the result of policy reforms taken by Estonia in a way that best suits their context, rather than being prescriptive action items on how to institute the reform. For example, reallocation of road space to prioritise active travel can incorporate many changes, including but not limited to the expansion of cycling and walking infrastructure, closure of certain streets to through car traffic, and traffic calming measures. Regardless of how road space is reallocated, these actions would contribute to the travel time impacts described in the table (first column). These time changes are modelled to simulate shift in travel behaviour and mode choice. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 155 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Rationale for the policy measures can be found in Chapter 2, Section 2.5. Steering user behaviour and public transport policy. Table 6. Modelling urban passenger measures in high and low ambition scenarios Measure description High ambition Low ambition (How the measure is modelled within the model) (year implemented) (year implemented) Measures that target behaviour change User charging – Congestion charge for Tallinn 2030 NA An average EUR 1.80 charge is applied to private car trips starting or ending in Tallinn. The charge represents the average charge for a trip that includes a portion within Tallinn (i.e. EUR 3.60 applied to half of the car trips). The charge amount reflects other European cities that have instated similar regimes, adjusted for incomes in Estonia and incorporates feedback from Estonian authorities received during the 22 April 2020 webinar. User charging – Tolling 2025 2025, but fuel costs are reduced by the A toll of EUR 0.09 per km is added to the cost of all private car travel. same amount (no The distance-based charge better represents maintenance costs associated change in net per km with infrastructure, which is often viewed as “free”. Moving away from cost of car travel) solely a fuel duty will be essential to maintain a viable tax base as fuel taxes decrease due to decarbonisation of road transport. Parking pricing 2020 2025 The lowest current parking rate is applied to all zones that did not have higher parking costs (EUR 0.60 per hour, assuming one hr of parking on average). It is assumed that all car trips are subject to this parking price. The average parking time is based on the household travel survey which suggested approximately one hour. Higher priced parking rates were preserved for the model zone in central Tallinn. Reallocation of road space (in Tallinn) 2025 2030 Increase time to travel by car and shared modes by 10% for trips starting or ending in Tallinn. Decrease travel time by 10% for walk and bike trips as well as public transport (PT) access time in Tallinn. These measures prioritise active travel over car trips when (re)designing roads. Travel time of cars is reduced while active modes appear more attractive due to reduced network severance, reduced car traffic, and other measures. PT access is assumed to be by foot and is therefore included in the improvements. Off-street parking regulations (in Tallinn) 2025 2030 Increase time to travel by car by five minutes for trips starting or ending in Tallinn. 156 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Measure description High ambition Low ambition (How the measure is modelled within the model) (year implemented) (year implemented) Regulating the currently plentiful off-street parking should limit the options available and make searching for a parking spot more difficult. This is applied as an absolute increase in car travel time since the time required for parking is not trip distance-dependent. Public transport improvements 2025 2035 Reduce onboard time by five minutes* and reduce wait time by 5% for all trips. PT improvements include, but are not limited to; schedule integration, priority measures at intersections, or allocation of road space for PT services. Some changes have a greater impact on longer trips, while other impacts offer a greater impact on short trips—using both an absolute and percentage-based reduction in travel time reflects this combination. Vehicle fleet transition optimisation Emission factor Emission factor reduction reaches a reduction reaches a Decrease average carbon emission factors for car, shared, and PT fleets. maximum of -25% in maximum of -5% in Emission factor reduction applied at a decreasing rate (faster at the 2050 2050 beginning) until a maximum in 2050. The reduction is compared to BAU in 2050, which also assumes a decreasing emission factor. Vehicle occupancy No change in vehicle increases less than 1% occupancy Increase average vehicle occupancy for car, shared, and PT fleets. every five years to Transitioning the Estonian car, shared and PT vehicle fleets requires shifting reach a maximum to a higher proportion of sustainable vehicles, which decreases carbon increase of 4% in 2050 emission factors. The shift in fleet composition can involve taxation of vehicles based on emissions to encourage adoption of lower emission vehicles, rebates, and other incentives/disincentives. Increasing the occupancy of these vehicles can further optimise their use. This can be met through lower car ownership, carpooling or ridesharing incentives, and optimised PT scheduling Measures that could improve cost recovery Increase PT tariff 2025 (50% increase) 2025 (10% increase) Increase PT cost by a given percentage. This measure is not meant to influence travel behaviour directly, in the way the other measures do. Rather, testing an increase in PT tariff allows decision-makers to determine whether increasing tariffs would significantly reduce ridership (which would not help with sustainability goals). If the negative impacts are minimal, increasing tariffs can improve cost recovery, and help agencies invest in better quality/more frequent services. * A perceived five minute time saving for all trips with onboard time greater than five minutes. Modelling national passenger transport policy measures. Modelling national passenger transport policy measures The national passenger model estimates the impact of the measures based on the three defined scenarios (BAU, HA, LA). The focus is on improving rail travel, and these are specified by rail corridor for the measures that target user behaviour. Figure 20 below shows the five aggregate rail corridors/areas of service specified in the model, as well as the aggregate zone system used. Rationale for the policy measures can THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 157 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? be found in Chapter 2, sections 2.5 Steering User Behaviour and Public Transport Policy and 2.6 Rail Freight and Infrastructure. Figure 20. Aggregate rail corridors and zone system in the national passenger model for Estonia Source: GIS data from Estonian Road Administration (2018a) and OpenStreetMap contributors (2020). The following table describes how the measures related to national passenger transport are modelled and the years in which they are implemented for each of the scenarios. Table 7. Modelling national passenger measures in high and low ambition scenarios Measure description Rail corridor High ambition Low ambition (year implemented) (year implemented) Modernisation of rail measures Electrification of rail lines Harju NA – already electrified NA – already electrified CO2 emission factor for trips on electrified lines is E-W, Tallinn to Narva 2030 NA zero. Rail travel on electrified lines is assumed to N-SE, Tallinn to Tartu 2025 2030 produce zero emissions. CO2 emissions due to only 158 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Measure description Rail corridor High ambition Low ambition (year implemented) (year implemented) electricity production is not included in the N-SE, whole line, 2025 NA analysis, as the analysis is limited to tank-to-wheel Tallinn to emissions. Valga/Koidula N-SW, Tallinn to 2025 NA Parnu/Viljandi Rail improvements Harju 2025 2030 Speed is increased by 30% from 120 kph to nearly E-W, Tallinn to Narva 2030 NA 160 kph, on average. Wait times are reduced by 50%. N-SE, Tallinn to Tartu 2025 2030 A doubling of frequencies is assumed due to the only planned increase in rolling stock. Speed improvements may be the result of electrification N-SE, whole line, 2025 NA as well as other rail upgrades. Tallinn to Valga/Koidula N-SW, Tallinn to 2025 NA Parnu/Viljandi Vehicle fleet optimisation All trips Emission factor Emission factor reduction reaches a reduction reaches a Decrease average carbon emission factors for car, maximum of -25% in maximum of -5% in 2050 shared, and public transport (PT) fleets. Emission 2050 factor reduction applied at a decreasing rate No change in vehicle (faster at the beginning) until a maximum in 2050. Vehicle occupancy occupancy The reduction is compared to BAU in 2050, which increases less than 1% also assumes a decreasing emission factor. every five years to reach a maximum Increase average vehicle occupancy for car, increase of 4% in 2050 shared, and PT fleets. Transitioning the Estonian car, shared and PT vehicle fleets to a higher proportion of sustainable vehicles, will decrease carbon emission factors. The shift in fleet composition can involve taxation of vehicles based on emissions to encourage adoption of lower emission vehicles, rebates, and other incentives/disincentives. Increasing the occupancy of these vehicles can further optimise their use. This can be achieved through lower car ownership, carpooling or ridesharing incentives, and optimised PT scheduling. Modelling international passenger and freight transport policy measures Railway improvements are the only international element for Estonia that this chapter focuses on. The main measures identified in the February 2020 workshop for international demand stand in the rail and road sectors. The limited data available on road and air were not adequate for detailed mode-split modelling. The international passenger and the freight models estimate impacts of the same rail measures as on the national level. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 159 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 8. Modelling international passenger and freight measures in high and low ambition scenarios Measure description Rail corridor High ambition Low ambition (year implemented) (year implemented) Modernisation of rail measures Electrification of rail lines and speed Harju NA – already electrified NA – already electrified improvements E-W, Tallinn to Narva 2030 NA CO2 emission factor for trips on electrified lines is highly reduced (0 emission tank-to-wheel). N-SE, Tallinn to Tartu 2025 2030 Speed is increased by 30%. only Rail freight operating cost is decreased by -30% on electrified lines. N-SE, whole line, Tallinn 2025 NA to Valga/Koidula N-SW, Tallinn to 2025 NA Parnu/Viljandi Interpreting modelled outcomes The indicator framework presented in Chapter 3 recommends a list of indicators to track and communicate the progress of transport policies. The modelled results discussed in the following sections are directly related, but in some cases provide alternative ways of looking at the same topics covered by this framework. While the focus of the framework is the ease of communication, the model outputs are directly applicable to decision-making and feeding into subsequent appraisal and analysis. The following table describes the similarities and differences between the two sets of indicators. Table 9. Modelled indicators to track impacts of policy measures on transport outcomes Measure description Mode share CO2 emissions Accessibility Affordability Indicator framework for Passenger kilometre CO2 emissions per Number of jobs % of total income passenger (pkm) by mode vehicle kilometre (vkm) accessible within spent on travel (all 30 mins modes) by lowest income quartile Passenger model Daily trips and pkm by Daily CO2 emissions Average travel time per Average travel cost output mode based on vkm trip* and per km, per per trip* and per km, mode per mode Indicator framework for Tonne kilometre (tkm) CO2 emissions per vkm Average time to reach Cost in Euros/tkm freight by mode the international market (or borders) Freight model output Annual tkm by mode Annual CO2 emissions Average travel time per Average travel cost based on tkm tkm. per tkm * per trip results are included in Annex 4.2. 160 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Mode share is an important indicator that drives many of the other results. Understanding the breakdown of the modes people and freight use, and the resulting kilometres travelled on each mode, forms the backbone of subsequent analysis. The model calculates CO2 emissions based on the distances travelled and distance-based emission factors for private, shared and public transport (PT) vehicle fleets for passengers. CO2 emission factors per tkm of freight are used for rail and road. Accessibility, based on the data available, is measured as travel time, a crucial input also for cost-benefit analyses. The model bases travel time on access to all destinations, not just jobs. Spatial distribution of jobs data was not available. Affordability is also based on all trips. The cost per trip and per kilometre can be multiplied out by monthly averages to understand how these costs compare to incomes. The following sections analyse the performance of these main indicators in each of the transport sectors, based on the recommended policy measures included in each of the scenarios. It is important to consider that a positive change in one indicator can appear to make a “negative” change in another indicator. For example, shifting to more active modes means travel times can increase. Often the goal of a measure is not to improve all these indicators but to impact a subset of them. Transport models and their results help understand some of these trade-offs between different outcomes. Finally, there are important considerations not covered by selected indicators which are difficult to model, such as physical or mental health, liveability, or quality of life. 4.2. Urban passenger transport in high and low ambition scenarios The strategic urban model allows policy makers to simulate the aggregate impacts of policy scenarios on urban travel by private modes, shared mobility (such as taxis), public transport (PT), cycling and walking. Due to Household Travel Survey (HHTS) data availability, the urban model focusses on Harju county, where Tallinn is located, and a portion of neighbouring Rapla county. The results should be interpreted in this context. There is strong potential for behavioural change concerning urban travel in Estonia. In the HA scenario, car trips could drop from the majority share to less than a third of all trips. Changes to the vehicle fleet coupled with the mode shift away from cars could reduce CO2 emissions by nearly 50% in the HA compared to the BAU scenario. Estonia identifies transport as a key sector in their National Energy and Climate Plan (EC, 2018) with the long-term goal of reducing total carbon emissions by 80% compared to 1990 levels by 2050. Estonia is also committed to a shorter-term goal of a total 13% reduction compared to 2005 by 2030. Policy measures targeting urban transport can significantly help in achieving this target. The model tests the impact of policy scenarios on mode choice at an aggregate level based on the zoning structure shown in the figure below. It should not be used to test changes at a finer neighbourhood level. The model reacts to changes in trip characteristics for each mode but does not reflect changes in land use, and therefore, changes in desired trip destinations. The distribution of the trips remains constant over time, though volumes change. Land use-transport interactions would require more detailed data and modelling. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 161 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Figure 21. Extent of urban model coverage and zoning system in Harju/Rapla Source: GIS data from Estonian Road Administration (2018a) and Open Street Maps (2020). All the measures listed in Table 6 are included in the scenarios with the exception of the public transport tariff increase. The other measures seek to encourage mode shift to sustainable mobility. The suggested tariff increase is a measure to improve cost recovery for public transport agencies. Tests with this measure are discussed separately as a sensitivity test, to demonstrate that a tariff increase will not lead to significant loss of ridership, and therefore should be considered. Mode share: Urban car trips shift to public transport and active modes In 2018, over 50% of all urban travel was done by car. By 2050, car trips account for 28% of total trips in the HA scenario while the LA scenario results in no major change (47% share by 2050). Figure 22 shows that in the HA scenario, the mode split remains constant after 2030 as all measures are implemented in full by 2030. In the LA scenario, the measures are phased in until 2035, and to a lower extent (see Table 6 for descriptions of measures). As trips shift to alternative modes, walking and public transport trips together account for the majority share in both scenarios. In the HA case, walk and public transport make up 34% and 33%, respectively, while, in the LA scenario 28% and 22%. Shared mobility and bike trips in the HA case contribute to 5% of trips overall, a significant increase from 2% in 2018, but there is little improvement in these modes from BAU if measures are implemented according to the LA scenario. 162 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Figure 22. Daily modal trip share of urban travel by scenario Note: BAU = Business as usual, HA = high ambition, LA = low ambition scenarios. The total passenger kilometres (pkm) travelled is expected to grow from 7.9 to 9.9 million due to population increases in Tallinn between 2020 and 2050. Car trips account for the vast majority (75%) of pkm in 2018, as car trips are longer, on average, than trips by other modes. The share of car pkm declines to 42% in the HA scenario and 68% in the LA scenario by 2050. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 163 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Figure 23. Daily modal passenger kilometre share of urban travel by scenario Note: BAU = business as usual, HA = high ambition, LA = low ambition scenarios. Shares are rounded to the nearest whole number. Bike share rounds to 0% as it is less than 0.5%. The HHTS results suggest that the inhabitants of the region are not very sensitive to the changes in cost for public transport. If a tariff on public transport is re-introduced to aid in cost recovery for the transit authorities, the results indicate only a small shift away from its use. A 50% increase in the average public transport tariff results in only a 1% decrease in public transport trips by 2050, causing the public transport mode share to fall by only 0.2%. User charging is the primary driver of the changes in trip and pkm shares in the HA scenario. The congestion charge and toll together are responsible for shifting the pkm share of car from 75% to 49%. All the other measures contribute to the additional drop of 7% (from the 49% due to user charging to the final 42% carshare mentioned above). In the LA scenario, these other measures are the only incentive for shifting from car use since the scenario does not include congestion charging, and the toll is offset by a decrease in fuel cost. Overall, the model is not very sensitive to changes in bike trips. The HHTS data, which was used for calibration, indicated a very low share of bike trips (less than 0.5%) in urban areas. Bike trip demand depends only on travel time in the model and does not account for factors like safety and comfort. Stated preference surveys are needed to understand the sensitivity of residents to these factors, which would further improve the sensitivity of the model. CO2 emissions: Reduce emissions by mode shift and optimisation of vehicle fleets The HA scenario achieves a 43% reduction of CO2 emissions by 2050 compared to the BAU emissions in the same year. In contrast, in the LA scenario emissions fall by 10%. In the BAU scenario, CO2 emissions for the region are approximately 869 tonnes per day in 2050 while the HA scenario reduces daily emissions to 495 tonnes in 2050. Most of the measures reduce private car travel, as noted in the previous section. Fewer pkms travelled by car means lower CO2 emissions. These measures are responsible for a reduction in CO2 of 19% for HA and 5% for LA scenarios, compared to BAU in 2050. 164 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? The remaining reduction (24% in HA) is due to vehicle taxation and changes in vehicle occupancy. A vehicle taxation policy based on their emission ratings (higher taxes for higher emission vehicles) encourages the purchase of low emission vehicles. As a higher percentage of low emission vehicles enter the Estonian fleet, the average emission factors per vkm decrease. Increasing the occupancy of vehicles by disincentivising car ownership, increasing costs, encouraging carpooling initiatives, etc. further reduces the number of vkm travelled which has a compounding effect on reducing CO2 emissions. Figure 24. Modelled CO2 emissions from urban passenger travel by scenario Affordability: User charging increases cost of car use to encourage mode shift Most of the urban measures focus on behaviour change; sustainable modes are made more “attractive” while private car use is made less attractive. Increasing the cost of modes is one of the most effective ways of encouraging behaviour change. As noted in the previous sections, user charging is largely responsible for the mode shift achieved in the HA scenario. As a result, the cost of car travel increases, and the affordability of car travel decreases. While making a travel option less affordable may seem like a negative consequence, it is this very cost increase that leads to the positive shifts to PT, biking and walking. The changes to the relative affordability of different modes is a primary effect of the measures. Additional policies such as subsidy programmes should be considered to alleviate unfairly burdening residents who do not have the option to shift to other modes due to service availability. Table 10 below shows, as expected, that the unit cost for travel per km increases the most for car travel, mainly due to the implementation of user charging. Bike and walk trips are considered to have no cost. Shared- and public transport-unit costs decrease slightly. Since there are no direct changes to shared mobility and public transport cost, as the scenarios are presented without the public transport tariff increase, this finding may not be intuitive at first without an understanding of how public transport and shared mobility costs are calculated. As car costs increase, longer car trips in the BAU case switch to shared and PT. Shared mobility costs are based on a fixed cost and a per-kilometre fee. As the share of longer shared trips increases, the average cost per kilometre decreases since the fixed cost is effectively spread over a higher number of total kilometres. Public transport costs are estimated based on the Harju area zone system. The cost between zones does not increase linearly; travelling between three zones is less than three times the cost of travelling within one zone. Therefore, as public transport gains a larger share of these longer trips, the average per kilometre cost is less. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 165 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? The weighted average for all modes accounts for changes in trip patterns. Even though there is a significant shift to public transport and active modes, the increase in shared mobility and increase in car use costs (which still make up a significant portion of total pkm) means that the average cost of travel per km increases. Table 10. Average travel cost per kilometre by mode Scenario Car Shared mobility Public transport Bike Walk All modes Business as usual EUR 0.14 EUR 1.74 EUR 0.09 0 0 EUR 0.15 EUR 0.39 EUR 1.54 (-12%) EUR 0.07 (-22%) 0 0 EUR 0.29 (+91%) High ambition (+174%) EUR 0.20 1.72 EUR (-1%) EUR 0.09 (-7%) 0 0 EUR 0.19 (+24%) Low ambition (+41%) Source: Fuel costs for car travel calculated based on IEA MoMo model (2018) and Global Petrol Prices (2020); shared mobility costs based on Tallinn City Tourist Office and Convention Bureau (2020); public transport prices based on combination of Pilet.ee (2020), Samat (2020) and discussions during the April 2020 online workshop. The average trip cost per mode, changes by the same proportion as the per kilometre changes, as they take into account changes in trip-making patterns. In the HA scenario, in 2050, the average trip cost is EUR 1.79 and the LA case is EUR 1.16. This represents a 91% and 24% change from the BAU case, of EUR 0.94 per trip, largely driven by user charging for car travel. A more detailed breakdown of average trip cost by mode is included in Annex 4.2. If a public transport tariff increase is introduced, as described in Table 6, the per kilometre cost increases 17% and 40% in the HA and LA scenarios respectively compared to BAU in the same year, rather than decreasing as presented in Table 10. The mode share, and trip characteristics, as described previously, change only minimally as a result of the tariff increase. Targeted subsidies should be provided to vulnerable users to ensure a balance between affordability and financial sustainability can be achieved. See Chapter 2, Section 2.5. Steering user behaviour and public transport policy for further recommendations. Accessibility: Travel time of active modes and public transport decrease and their mode shares increase The policy measures in the scenarios play directly on car and public transport costs, while the impacts on the cost of other modes are secondary due to changes in mode choice. Travel time, however, is directly influenced for all modes by various measures to encourage a shift to more sustainable mobility options. Car travel time is increased due to changes to off-street parking in Tallinn. Reallocation of road space to prioritise active modes increases travel time for both car and shared mobility services, while decreasing time for active travel—including the portion of a public transport trip spent walking to a stop. Public transport onboard time and waiting times are also reduced as a result of improvements due to the integration of services. The resulting travel time per km for each mode reflects these changes: Public trasport times improve by 17% while reductions in travel time are 7% for bike and 8% for walk trips in the HA scenario compared to BAU in 2050. Car and shared mobility speeds fall. The average travel time increases 43%, compared to BAU, due to the shift of more trips to slower (but more sustainable) modes. 166 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? In both HA and LA scenarios, by 2050, travel times for public transport and active mobility have reached the same magnitude of change. User charges for car travel, however, are not implemented in the LA scenario. The Tallinn congestion charge, in particular, shifts a large proportion of Tallinn based car trips to alternative modes in the HA scenario. Without this shift in Tallinn, the speed reductions due to the reallocation of road space in the city affect a greater proportion of car trips in the LA scenario, increasing average travel time more than in the HA scenario (29% rather than 18%). Overall there is less shift in trips in the LA scenario compared to BAU. Therefore, there are more Tallinn-based shared trips in the LA scenario, which are subject to the travel time increases than in the HA scenario where trips shift to PT. Therefore, the shared trips also experience longer travel times, on average, in the LA scenario. Table 11. Average travel time per kilometre by mode Scenario Car Shared mobility Public transport Bike Walk All modes Business as 1.3 1.3 5.6 3.3 13.1 2.9 usual (minutes) High ambition 1.5 (+18%) 1.5 (+17%) 4.6 (-17%) 3.1 (-7%) 12.1 (-8%) 4.2 (+43%) (minutes) Low ambition 1.7 (+29%) 1.7 (+33%) 4.6 (-17%) 3.1 (-7%) 12.1 (-8%) 3.3 (+13%) (minutes) Note: Congestion (changes in speed) in response to changes in demand is not modelled at this strategic level. Source: Travel time calculations based on OpenStreetMap (2020) road network and GTFS data for Estonia provided by the Estonian Road Administration (2020a). The average trip time per mode, changes by the same proportion as the per kilometre changes, as they take into account changes in trip making patterns. In the HA scenario, in 2050, the average trip time is 25.9 minutes and the LA result is 20.6 minutes. This represents a 43% and 13% change, respectively, from the BAU case of 18.2 minutes per trip. A more detailed breakdown of average travel time per trip, by mode is included in Annex 4.2. This model assumes static trip patterns. This should be considered when interpreting the accessibility and affordability results. The land-use patterns and the location of destinations remain constant over time. When active modes and public transport is prioritised in cities, despite the speed of these modes improving, the average trip may cost more or take more time, simply because people start accessing further destinations via these modes. However, this shift, in the long term, encourages changes in land- use patterns to denser development. This discourages people to drive to their work, commercial and social outings. As provision for pedestrian and bike path connectivity and accessibility by public transport is improved, these travel distances can become shorter, further improving the average trip time and cost characteristics. For more on improving the linkages between transport and land use, please see the Chapter 2, Section 2.5. Steering user behaviour and public transport policy. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 167 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? 4.3. National passenger transport in high and low ambition scenarios The national passenger transport model simulates the aggregate impact of rail improvement measures and changes in the car and public transport vehicle fleets. The model focuses on rail, bus, and car travel, which are the primary modes for inter-urban trips. Both inter and intra-zonal trips are included in the model. Walking, biking or shared modes were not modelled as they are typically only applicable to shorter urban trips and hence not viable for inter-urban distances. The rail service improvements lead to significant increases in rail travel from the current levels. However, due to the comparatively small share of rail passengers today, results do not have a significantly transformative impact on a national scale. Since car and bus travel make up the majority of the pkm, transitioning to more sustainable private and public fleets lead to the majority of the 30% total CO 2 emission savings from national passenger travel in the HA scenario. Mode share: National passenger travel shifts to rail due to service improvements on corridors The measures that target user behaviour focus on improving rail travel. The rail improvement measures affect speed and service frequencies of rail travel leading to an overall trip increase of 85% in the HA scenario and a 65% in the LA scenario, compared to BAU in 2050. The overall mode share of rail increases from 2% to 4% due to the improvements in the HA scenario, and 3.5% in the LA scenario. While the mode share nearly doubles in the HA scenario, this still means a modest change in the overall mode share of national travel due to the dominance of car travel for national passenger travel. Figure 25. Change in daily rail trips by scenario The assessment does not consider any direct measures for bus travel, therefore bus share remains unchanged overall while the shift to rail is driven by car users changing to rail. The model is not sensitive to user choices between rail and bus due to the lack of mode-specific data from a national HHTS or stated preference survey. The split between rail and bus is estimated using post-processing steps instead. As a result of these limitations, bus services are assumed to remain constant, and that the rail measures cause mode shift from car only. This assumption is based on the fact that bus services in competition with rail 168 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? would likely experience a decrease in ridership due to enhanced rail service. Buses, however, are also an important feeder service for rail, and therefore an increase in demand for these routes to serve the growing rail demand is expected. Overall, these gains and losses are not expected to create a significant net change in the bus market as a result of improvements in rail frequency and service level. Figure 26. Daily modal trip share of national passenger travel by scenario The shift in share of pkm, nationwide, is less than that for trip share (around 1% in both scenarios). There are two possible reasons for this. For one, the shift from car to rail stems mainly for relatively shorter trips. Additionally, a trip where rail is the primary mode also involves a certain portion of non-rail travel to access the station, whether by car or bus. Therefore, rail pkm do not increase as significantly as rail trips. Figure 27. Change in daily rail passenger-kilometres by scenario THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 169 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Figure 28. Daily passenger-kilometre share of national passenger travel by scenario Disaggregating the results by corridor, the most pronounced increase in rail passenger-kilometres occurs in Harju, which has the greatest share of rail to begin with due to multiple rail lines, dense population, and therefore the highest rail usage. The N-SE corridor from Tallinn to Tartu and further South witnesses the second-highest absolute change in pkms due to the higher volume of travel on the corridor. However, as a percentage increase from the BAU rail passenger-kilometres, the increase is not as large because there are alternative PT options due to competing bus routes along the corridor. The second-highest percentage increase in rail compared to BAU stems from the N-SW corridor, which currently serves Viljandi by rail. Table 12. Change in daily rail passenger kilometres by rail corridor and scenario in 2050 Rail Corridor Absolute increase in daily rail % increase in rail passenger- passenger-kilometres compared to kilometres compared to BAU BAU High ambition Low ambition High ambition Low ambition Harju 428 000 428 000 99% 99%* (0% before 2030) E-W, Tallinn to Narva 76 000 0 28% 0% N-SE, whole line, Tallinn to 89 000 42 000 13% 6% Valga/Koidula N-SE, Tallinn to Tartu only 61 000 42 000 14% 10% N-SW, Tallinn to Parnu/Viljandi 104 000 0 44% 0% * Harju is electrified in both HA and LA scenario, but later in 2030 for LA (2025 in HA). So there is no difference between the two alternative scenarios after 2030. However, before 2030, the change in LA is 0%. 170 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? CO2 emissions: Emissions from national passenger travel reduce due to electrification and a shift to rail The HA scenario results in a 29% reduction of CO2 emissions by 2050 compared to the BAU emissions in the same year. In contrast, the LA scenario results only in a 6% reduction. In 2050, the CO2 emissions for Estonia decrease from approximately 635 000 tonnes per year in BAU, to 140 000 tonnes in the HA scenario. All measures contribute to the decrease in CO2 emissions. The pkm share by mode responds to service improvements. The emission factors change due to the electrification of rail and changes in vehicle fleet composition and occupancy. Figure 29. Daily carbon emissions due to national passenger transport by scenario Full electrification of rail in the HA scenario means that all rail trips are assumed to be emission-free (considering tank-to-wheel emissions). The estimations of well-to-wheel emission are based on the European average for the emission factor for electric production. However, given the relatively small share of rail, electrification and service improvements together result only in a 2% decrease in CO2 emission in the HA scenario, and a 1% decrease in the LA scenario in 2050 (mainly brought from modal shift to rail). The figure below highlights the change in rail emissions over time. Figure 30. Change in carbon emission due to national rail travel, tank-to-wheel and well-to-wheel comparison In the LA scenario, the increase of well-to-wheel emissions on rail due to the increased rail traffic is not compensated by the electrification of the Harju and Tallinn to Tartu railway lines. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 171 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Changes in vehicle fleet composition and changes in vehicle occupancy for both car and bus fleets are responsible for the majority of the CO2 emissions savings. If the Estonian fleets shift to a higher proportion of low emission vehicles, the average emission factors per vehicle kilometre decrease as previously explained in the urban results section. Increasing the occupancy of vehicles reduces the number of vehicle- kilometres travelled, further reducing CO2 emissions. The figure below highlights this change in emissions due to car and bus travel, which are responsible for 82% and 17% of total emissions, respectively. Figure 31. Change in daily carbon emissions due to national car and bus travel by scenario Affordability: There is virtually no change in cost of travel per trip The measures do not target cost of travel directly. While changes in mode choice can alter costs slightly, as seen in the urban case, the increase in national rail travel does not shift the overall mode share drastically enough to make a significant change in travel costs per trip at the national aggregate level Accessibility: Rail travel time reduces due to service improvements Rail service improvement is the only measure that affects mode choice characteristic by decreasing travel time by 30% and waiting time (due to higher service frequency) by 50%. All rail trips experience this change in the HA scenario, while in the LA scenario, only rail lines in Harju, and from Tallinn to Tartu are assumed to change. Complementary tests on road investments The following additional road investments were not included in the two alternative scenarios but were evaluated for Estonian authorities in separate and independent tests. The road investments consist of the improvements of main road corridor sections with only one lane on each side or 2+1 lanes. In the tests, investments are made to enlarge all selected sections of road to 2+2 lanes (average speed of 113 kph) in one case. In the other case, the 1+1 sections are enlarged to 2+1 (average speed of 102 kph) except for Tallinn ring road sections, which are enlarged to 2+2 but at a later date. The resulting time savings for each corridor (provided by the Estonian Road Administration) are indicated in Table 13, which also shows the scenarios (HA* for 2+2 improvements, and LA* for 2+1) used as a basis for the evaluation, even if these measures are not included in the final HA and LA policy scenarios. 172 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 13. Road improvement assumptions Test year of Length in km Speed implementation in Time Road improvements by Average daily of the increases the alternative savings in corridor traffic in 2018 sections to (from -> to) scenario minutes be improved in km/h HA* LA* 9 795 8 90 -> 113 1 Harju Tallinn ring road (2+2) 14 150 2025 2030 15 218 31 102 -> 113 2 Tallinn-Narva (2+1) E_W 111 90 -> 102 9 2030 (LA*) 6 013 Tallinn-Narva (2+2) 6 013 111 90 -> 113 15 E_W 8 435 2025 (HA*) 11 437 89 102 -> 113 5 Tallinn-Parnu (2+1) N_SW 86 90 -> 102 7 2030 (LA*) 8 861 Tallinn-Parnu (2+2) 8 861 86 90 -> 113 12 N_SW 10 227 2025 (HA*) 18 968 15 102 -> 113 1 Tallinn-Tartu (2+1) N_SE 79 90 -> 102 6 2030 (LA*) 8 108 Tallinn-Tartu (2+2) 8 108 79 90 -> 113 11 N_SE 9 906 2025 (HA*) 11 925 90 102 -> 113 5 * the scenarios indicated here are the ones used as a basis for the test implementation, to calculate and present the results, even if these measures are not included in the final HA and LA scenarios. Source: Estonian Road Administration (2020b). We consider that traffic is currently captive at the selected road section with no real alternative routes. However, the increase in speed shifts traffic from other modes but not from other roads. We use our model to estimate the modal shift to road, using travel time savings shown in Table 13. Table 14 and Table 15 respectively show the results in terms of traffic per section and per corridor (a corridor corresponds here to a group of origin-destinations, county to county). The resulting traffic increases from modal shift are quite modest on the road sections we assessed, ranging from 3% for Tallinn ring road to 13% for Tallinn-Tartu route (Table 14). THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 173 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 14. Road improvement traffic results per section (average daily traffic) Traffic increase Average on the road Road section to be daily traffic section improved in 2018 in HA* in LA* (2+2) (2+1) Tallinn ring road 14 150 3% 3% Tallinn-Narva 8 435 9% 5% Tallinn-Parnu 10 227 8% 5% Tallinn-Tartu 9 906 13% 5% Table 15 includes all resulting car trips for each region, so the relative increases in the total number of daily car trips look even smaller: compared with the business-as-usual, the HA* (2+2 lanes) scenario results in an overall increase of 0.4% in car traffic, double that of the LA* (2+1) scenario (0.2%). The corridor which benefits the most from the assessed road improvements is the N-SW axis (Tallinn – Pärnu) with a 0.8% increase in the total number of daily car trips in the HA* scenario. These results are very similar in relative terms for the number of vehicle kilometres and passenger-kilometres. Table 15. Road improvement traffic results per corridor (total number of daily car trips) HA* / LA*/ Corridor BAU 2050 HA* 2050 LA* 2050 BAU BAU Harju 432 900 433 500 0.16% 433 500 0.16% E_W 180 200 181 400 0.7% 180 800 0.4% N_SW 169 300 170 600 0.8% 170 100 0.5% N_SE 280 900 282 700 0.7% 281 700 0.3% Whole country 1 080 900 1 085 500 0.4% 1 083 600 0.2% Table 16 and Table 17 give the results in terms of affordability and accessibility for the whole country (to allow for comparison of any kind of measures). The average travel cost by car per trip and per kilometre does not increase compared with the business-as-usual. However, the total travel cost by car increases as a result of the growth in the number of car trips (+0.4% in HA* scenario). The average travel cost for all modes also increases (0.2% in HA* scenario) because of the modal shift to car from less expensive public transport. In line with the traffic results, the travel costs for the HA* scenario are double those for the LA* scenario. 174 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 16. Road improvement affordability results (countrywide) Average travel Average travel Total travel cost cost in Euro per cost in Euro per (EUR) trip km HA* / LA*/ HA* / LA*/ HA* / LA*/ BAU BAU BAU BAU BAU BAU cars 0.4% 0.3% 0.0% 0.0% 0.0% 0.0% all modes average 0.2% 0.1% 0.2% 0.1% 0.1% 0.0% In both scenarios, the total travel time, as well as average travel time, (per trip and per kilometre) are reduced (-1.4% for HA*, -0.7% for LA*). This is due to travel time savings stemming from the road improvements and speed increases. The overall travel time reduction for all modes is -1.1% in the HA* scenario, -0.6% in the LA* scenario (Table 17). Table 17. Road improvement tests accessibility results (countrywide) Total travel time Average travel Average travel (min) time (min/trip) time (min/km) HA* / LA*/ HA* / LA*/ HA* / LA*/ BAU BAU BAU BAU BAU BAU cars -0.9% -0.5% -1.4% -0.7% -1.4% -0.7% all modes average -1.1% -0.6% -1.1% -0.6% -1.3% -0.7% To conclude, the road investment scenarios evaluated above (enlarging all selected road sections to 2+2 lanes, or only 1+1 sections to 2+1 lanes) result only in marginal improvements in terms of overall travel time and travel costs. This result is mainly due to the relatively low level of traffic currently on the corridors and sections of roads analysed. As such, these results do not support investment, however, we have not carried out comparative cost-benefit assessments to further analyse and compare the social costs and benefits of these improvements. 4.4. International passenger transport in high and low ambition scenarios This assessment only concerns international passenger travel by rail under the HA and LA scenarios. The main measures identified in the February workshop for international demand stand in rail and road sector. Moreover, the limited available data on road and air were not adequate for detailed mode split modelling. International passenger trips on railways are concentrated on the East-West axis Tallinn - Narva - Russian Federation. Given the length of the average trip on this line (about 16 hours Tallinn to Moscow, including more than 1 hour and 30 minutes of stops at the border), improvement of railway speed in Estonia does not have a significant impact on passenger transport. An increase of 30% of the rail speed in Estonia would bring only a 5% gain on the Tallinn to Moscow travel time. The only measurable effect concerns the CO2 emission savings that are brought by the electrification of the East-West axis in the HA scenario. With one train per day per direction (728 trains per year) on the THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 175 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? 153 km of the rail axis, with an average diesel consumption of 1.7 L/km (containing 3.07 kg of CO2 per L, (UNECE 2012)), this represent about 580 tonnes of CO2 per year that could be saved moving to the electric locomotive (tank-to-wheel estimates). 4.5. Freight transport in high and low ambition scenarios The lack of data on road freight by origin-destination and by type of commodity has limited the scope of the analysis on freight transport. It is difficult to validate a freight model by mode without this type of data. Instead, the freight model assesses the impact of the main policy measures based on a model developed from the Estonian railway dataset of freight flows. This dataset includes information on transported goods volume in tonnes, per commodity, the country of origin and destination, and the railway axis used in Estonia. Then changes to these flows for the two alternative scenarios are estimated using cost elasticities extracted for ITF global freight model by origin-destination (OD) and by commodity. The following estimates are mainly based on the railway flows as observed in 2018. A large majority of freight (over 90% of the tkm) is international traffic, with domestic traffic accounting for the remaining tkm on Estonia’s public railways. Table 18. Current railway freight activity Railway freight activity Thousand tonnes Millions tkm International 10 633 79% 1 847 91% Domestic 2 772 21% 176 9% Total 13 405 100% 2 023 100% The objective of the assessment is to test the impact of the electrification of the Tallinn to Tartu railway line (LA scenario) and of all railway lines (HA scenario). Given the high uncertainty on the future evolution of trade, the assessment of both scenarios is done here on 2018 flows as a basis. This allows for eliminating the impact of the uncertainty over trade growth from the analysis but still is sensitive to the impact of cost on mode share. It is assumed that the electrification will reduce the railway operating costs by 30% (in EUR/tkm) for the lines considered. This impact is then applied according to the estimated distance per axis travelled for each OD on the network. The variation in tkm is estimated by each OD and by commodity group, using the elasticities (ranging from -0.1% to -80%) that are extracted from the ITF Freight model described in more details in Annex 4.1. The following table illustrates the calculations for two theoretical OD pairs, for the effect of a -30% reduction in cost in increasing tkm transported. 176 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 19. Illustration of the impact of rail cost reduction using elasticities on theoretical origin-destination pairs Tkm Distance of the Total Elasticity to cost of Cost % relative Resulting 2018 section to be distance of the commodity reduction change in tkm electrified the OD group for that OD tkm 100 100 km / 100 km -50% -30% 15% 115 100 100 km / 500 km -20% -30% 1.2% 101.2 Table 19 also shows that the longer the OD is, the smaller is the impact of the cost reduction on a given section. Impact of the railway electrification on mode share The following table shows the overall results for the HA and LA scenarios by commodity group. Table 20. Impact of railway electrification on freight flows by commodity group for the two alternative scenarios Freight volumes and Thousand % of millions millions % millions % tonne-kilometres by Commodity tonnes total tkm 2018 tkm in relative tkm in relative group 2018 HA diff. LA diff Fertilizers 5 378 40% 681.5 683.0 0.2% 682.1 0.1% Mineral fuels (liquid) 4 411 33% 736.4 750.1 1.9% 741.2 0.7% Mineral fuels (solid) 1 450 11% 237.1 237.5 0.2% 237.3 0.1% Chemical products 1 066 8% 122.5 122.8 0.2% 122.6 0.1% Bulk goods 313 2% 55.7 55.8 0.2% 55.7 0.1% Perishable goods, animals, vegetables 243 2% 67.0 67.2 0.3% 67.1 0.1% Metals 196 1% 44.2 44.3 0.1% 44.2 0.1% Industrial goods, machinery, building 175 1% 39.7 39.9 0.6% 39.8 0.3% materials, others Timber 135 1% 33.2 33.2 0.0% 33.2 0.0% Grain 36 0% 5.5 5.5 0.3% 5.5 0.1% Total 13 405 100% 2 023 2 039 0.8% 2 029 0.3% The impact of the electrification on rail tkm is modest: +0.8% in HA scenario and 0.3% in LA scenario. However, these results should be considered as low boundary estimates as the elasticities used are somewhat lower than those used usually. Further, only the elasticity to rail cost has been taken into account here (because elasticities to travel time by rail are even smaller). Impact of the railway electrification on CO2 emissions In order to assess the impact of the electrification on CO2 emission, the following assumptions in Table 21 (UNECE 2012) on emissions factors per tkm were used. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 177 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 21. Assumptions regarding CO2 emission factors for diesel and electric freight trains per tonne-kilometre CO2 emission factor per tkm by rail: g CO2 / tkm Non-road diesel 27.1 Electricity consumed in Europe 13.5 The resulting CO2 emissions per axis are as follow: Table 22. Resulting CO2 emissions per railway axis for the two alternative scenarios CO2 emissions in tonnes per railway axis 2018 High Difference LA Difference estimates ambition HA - BAU LA - BAU Harju (already electrified) 3 903 3 928 25 3 914 12 Harju (lines to be electrified) 2 242 1 124 -1 118 1 120 -1 122 E - W (Narva) 15 873 7 991 -7 882 15 902 29 N-SE (Harju to Tartu) 17 293 8 677 -8 616 8 646 -8 647 N-SE (Tartu to border) 11 455 5 749 -5 706 11 497 42 N-SW (Viljandi) 119 59 -60 119 0 Total 52 902 27 528 -25 374 41 198 -11 704 Full electrification of freight railways in HA scenario would result in 48% reduction of CO2 emissions with a total saved of more than 25 000 tonnes of CO2 per year. While the electrification of only Tallin-Tartu axis (LA scenario) would result in 22% reduction of emissions (more than ten thousand tonnes of CO2 per year). 4.6. Prioritising policy reforms to meet policy goals The analysis of the scenario results in the previous sections shows how different levels of implementation of measures affect the transport system to different degrees. Each of the measures needs to be evaluated and prioritised based on the desired policy goals. While this report describes these measures aggregately as part of policy scenarios, Table 25 in Annex 4.2 tabulates the individual impacts on mode shares, affordability, and accessibility of each measure applied on its own. To encourage a transition to active travel and public transport it is important to make these modes more attractive. This would bring significant health advantages, encourage denser urban development, improve the urban environment more generally and reduce CO2 emissions and other pollutants. The difference between the HA scenario and the LA scenario highlights the importance of disincentivizing car travel for urban transport. User charging is the main driver for reducing the carshare for urban travel (without charging carshare of passenger-kilometres reduces by 7%, while with user charging it falls by 33%). Unless car travel is actively discouraged, changes due to reallocating road space for active travel and improving public transport services are minimal. The combination of a flat congestion charge for trips in Tallinn and a distance-based toll acts on a range of trip types. The congestion charge shifts trips from car to sustainable modes in urban areas which have better public transport service and denser development, while the toll also discourages longer car trips. At the same time, it is important to consider the effects of user charging to those with 178 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? limited alternatives, using differentiation of charges and/or cross-subsidisation among different groups of users. If climate change is the first priority, Estonian transport officials should consider the transition to cleaner private and public vehicles and optimising their occupancy. In the ITF’s analysis of both urban and national passenger travel, the transition to cleaner vehicles and optimisation of their use would account for around half of the CO2 emission savings compared to the BAU scenario. National passenger travel is dominated by car travel. Cars still account for at least 42% of pkm in the most ambitious scenario, even though the HA scenario demonstrates a strong shift away from cars in urban passenger travel. If the vehicles in the Estonian fleets have lower emission factors, even with the high passenger-kilometres, it is possible to significantly reduce the carbon emissions from the sector. Transitioning to a more efficient private fleet requires encouraging people to purchase newer and less-polluting vehicles, while also disincentivizing older vehicles from remaining in the active fleet. Policy reforms to achieve this include differential tax regimes and bonus-malus programmes. Investing in lower- emission vehicles in public transport fleets will also help lower the emissions from this sector, especially as their pkms grow due to mode shift caused by other policies. Public vehicles have a higher intensity of use by nature and their uptake enables wider uptake of low emission vehicles more generally in the region. Further optimisation is possible if vehicle occupancy is increased. Lowering car ownership through carpooling and ridesharing schemes can help encourage higher occupancies during car travel. public transport fleets can also be run closer to optimal capacity through regular review and optimisation of schedules. Rail improvements could be very effective at increasing ridership, but they are restrained by rail’s overall small share. Improvements to service frequency and speed have significant impacts on the existing rail share for passenger transport, albeit from very low starting levels; the share of rail remains small despite doubling from 2% to 3.5%-4% in the LA and HA scenarios. Electrification has a significant impact in reducing the share of CO2 emissions from passenger rail transport—rendering tank-to-wheel emissions effectively zero. As rail accounts for a small share of total passenger transport however, the effects are negligible on the total emissions from all national passenger travel. On the other hand, full railway electrification would bring significant CO2 savings for freight with more than 25 000 tonnes of CO2 reduced per year. The modelling results presented in this report are defined by the data available at the time of model construction. To better equip Estonia for more detailed transport modelling, a nationwide travel survey should be prioritised to better understand trip-making patterns and mode choice behaviour. Future modelling efforts would also benefit if the household travel survey questions were streamlined to match the definitions of sociodemographic questions in the Estonian census, as well as co-ordination of spatial zoning systems with other official data sources. The ITF understands there are efforts underway to conduct such a survey in the immediate future. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 179 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? References EC (2018), Translation of the National Energy and Climate Plan (NECP 2030) of Estonia, Tallinn. https://ec.europa.eu/energy/sites/ener/files/documents/ee_final_necp_main_en.pdf. Estonian Road Administration (2020a), National GTFS data. Estonian Road Administration (2020b), Road projects - traffic and speed per section. Estonian Road Administration (2018a), Administrative boundary GIS data. Estonian Road Administration (2018b), Tallinn household travel survey. Estonian Road Administration (2015), Harju/Rapla household travel survey. Global Petrol Prices (2020), Estonia gasoline prices, 10-February-2020, https://www.globalpetrolprices.com/Estonia/gasoline_prices/ (accessed 10 February 2020). IEA (2018), IEA Mobility Model (MoMo). ITF (2019), Transport Outlook 2019, OECD Publishing, Paris, https://doi.org/10.1787/transp_outlook-en- 2019-en. OpenStreetMap contributors (2020), Road and rail networks and basemap GIS data, www.openstreetmap.org (accessed 15 January 2020). Pilet (2020), Harjumaa, https://www.pilet.ee/cgi-bin/splususer/splususer.cgi?op=list_trans&piirkond_id= 3&type=E (accessed 8 February 2020). Samat (2020), Ticket prices on regional lines, https://www.samat.ee/en/timetables-prices (accessed 8 February 2020). Tallinn City Tourist Office & Convention Bureau (2020), Getting around, https://www.visittallinn.ee/eng/ visitor/plan/getting-around/taxi (accessed 8 February 2020). UNECE (2012), CO2 information for transport services - Methodological guide, United Nations Economic Commission for Europe, https://thepep.unece.org/sites/default/files/2017-06/Info_CO2_ Methodological_Guide.pdf. 180 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Annex 4.1. Building strategic models Transport models simulate real-life travel behaviour in a simplified manner. As part of the quantitative component of this policy review, the ITF created a strategic modelling suite comprised of a series of four high-level, sector-specific models. They allow policymakers to test the impact of policy measures on transport indicators which are key to measuring progress in areas such as CO2 emissions, accessibility, affordability and mode share. This annex provides a concise overview of the modelling approach. A detailed technical explanation of the methodology has been provided to the Estonian ministry, as with instructions on how to use the strategic modelling tools. The strategic models follow a well-established approach The models largely follow a traditional four-step approach to transport modelling to determine travel demand, with an additional step to calculate CO2 emissions. The outputs of each step feed into the next step as inputs, illustrated in Figure 32. The first step is trip generation. Its purpose is to determine the number of trips originating and ending at each zone. The second step, trip distribution, distributes trips between all possible combinations of zone pairs in a way that preserves the total trip origins and destinations as determined in the first step; the result is an origin-destination (OD) matrix. The third step, mode choice, estimates the share of trips taking each mode for each OD. Figure 32. Four-step transport modelling methodology to determine travel demand and calculate CO2 emissions A demand model encompasses the first three steps. The fourth step, trip assignment, assigns each trip, from each more to the available road and public transport network. The additional step is required when developing a traffic model. Traffic models are useful for making specific project design decisions. They go THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 181 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? beyond the scope of a strategic model such as this one, which allows the testing of high-level policy scenarios. Data availability defines model robustness Data is at the heart of a model building and validation process. The level of detail that is possible within the model, as well as tests of its validity, require adequate data. For the urban passenger model, two household travel surveys provided by the Estonian Road Administration, Tallinn HHTS (2015), and Harju/Rapla (2018b) indicate the revealed preferences of individuals, connecting their sociodemographic and geographic characteristics with their travel choices. The respondents are asked their residential location, several sociodemographic questions, the origin and destination of all trips on a given day, and the mode used. This data informs the algorithm that mimics decision-making within the model. Sociodemographic data is also used to expand the insights of the HHTS data to the population of the region. The boundaries of the modelled region are limited to the area covered by the HHTSs. Trip characteristics are computed using OpenStreetMap road network data and the nationwide GTFS feed. The ITF validated the urban model using commuting data from Statistics Estonia. The national passenger model uses some assumptions from the urban model to determine the trip rate, or volume of trips being made in each of the counties, as well as the sensitivity to certain trip characteristics. These calculations are adapted to the national transport context, using Statistics Estonia data on commuting choices. This is coupled with mobile phone-based OD data from the Mobility Lab at the University of Tartu to understand the distribution of trips. The model is validated using rail trip and pkm data and bus and car vkm data. International passenger model The framework for modelling international passengers is based on the work done for the ITF Transport Outlook (2019) at the global level. In the recent years, the ITF’s previous international aviation model has been extended to include all non-urban passenger mobility in all main passenger modes (except maritime passengers’ movements such as cruise shipping that are mainly recreational and not a derived transport activity). The model separates the inter-urban traffic from the regional traffic not measured already in the urban passenger model. The inter-urban traffic is assessed using a four-step model approach that starts with the setting of the travel demand - propensity to travel (for different travel ranges), continues with destination choice, mode choice and finally route assignment (for the aviation component). All this is developed under a unified model where surface modes can be used as “feeding” modes to aviation and the propensity to travel of all modes is interdependent while allowing for modal transfers to occur. The regional model results originate from a travel activity generation model; the travel demand is then split among the surface modes available in each region, given the local context variables (e.g. infrastructure, car ownership). Freight Model The framework for modelling freight is based on the work done for the ITF Transport Outlook (2019) at the global level. International and domestic flows are aligned to match the national tkm activity forecast calibrated from the data reported by countries. Both are matched using a calibration procedure that 182 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? improves the route assignment but also assesses the domestic component of international freight and the share of urban freight. The international component still estimates activity for 19 commodities for all major transport modes and routes, while taking into account different transport and economic policy measures (e.g. the development of new infrastructure networks, or the alleviation of trade barriers). OECD trade projections (https://stats.oecd.org/) are used to convert trade in value terms into freight volumes. The ITF model framework consists of the following components: 1.Trade flow disaggregation model, 2.Value-to- weight model, 3.Mode choice model, and 4. Equilibrium route choice model. The following elements were extracted from the model to build a simplified model under Excel: OD characteristics (time and cost), OD flows in weight by commodity and by mode, elasticities of mode share to the ODs characteristics. The model was validated against available statistics of the freight activity in Estonia in tkm. The model components of the ITF Freight model are:  International components o Trade forecast model: uses the ENV-Linkages model (ENV-OECD) [https://www.oecd.org/env/45334643.pdf] o Spatial discretisation: currently with 404 zones around the world o Generation of trade OD matrix: based on raster-based estimates of GDP in the influence area of each centroid. The model now splits the trade of each commodity and takes into account the structure of the economy in the region of each centroid (economic sector). o Value-to-weight model: converts the trade value into weight, given the economic profile of each OD pair but also the existing connectivity (log-sum indicator of the transport supply costs for the OD pair). o Mode choice model: improved representation of logistic chains in the intermodal transport in maritime routes. The model has a better representation of costs and a relevant element for mode choice. o Equilibrium assignment: assignment to the shortest path and updating of cost and times of capacitated network elements (ports, road, rail and sea links). The model incorporates the cost estimation of each route as the main element to estimate route choice.  Surface domestic model: o Demand generation module: Poisson regression with socioeconomic variables o National surface centroids: set coverage model over the GDP raster background o National OD matrix: gravitational formula to estimate the flow between each OD pair, given the average distance between OD pairs and the cost structure of shortest paths between origin and destination in different transport surface modes (ail, road and waterways). o Network assignment: cost function updated every iteration in co-ordination with the international model. User-friendly tools are a priority All four simplified modelling tools are user friendly, fast, and can be operated in Excel. While the Excel-based tool is more pragmatic for use at a strategic level, they are based on more detailed modelling THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 183 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? by ITF. In the case of the urban and national passenger models, the ITF first built a more detailed model using R software which was calibrated at a finer level of detail. The second, aggregated Excel-based model relies on some outputs from R and produces similar results in an Excel-based version of the tool. The complexity of the trip generation and distribution steps are better suited for software like R, while Excel allows for user-friendly manipulation of the mode choice step which is key to testing changes in user behaviour. For international freight and passenger models, the same simplifying principles have been applied: the mode choice estimates are implemented through elasticities to cost and time that are extracted from the models. 184 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Annex 4.2. Affordability and accessibility modelling results Urban model affordability and accessibility results by trip To understand the time and cost average per trip results, it is first important to understand how average trip lengths per mode change. Average trip time is calculated as the total travel time taken on a given mode, divided by the number of trips made by that mode. Likewise, average trip cost is the total travel cost on a given mode, divided by the number of trips on that mode. Both time and cost are driven by the length of trips. The distance and demand for each OD is fixed between all three scenarios. It is assumed that trip distribution does not change, therefore, the measures play primarily on mode choice. Therefore, the total demand (number of trips) and total distance travelled does not change between scenarios, what changes is the modes on which they occur. The challenge in understanding these results come from the fact that average trip lengths per mode, increase for all modes. This sounds paradoxical, but consider this simplified theoretical example below. Imagine cases A and B, below, which describe travel between three different zones by three different modes. The total kilometres travelled do not change (142 km), nor do the number of trips (26). You have the same origin-destination pairs with the same distance between them. In Case B, the 5 km car trips drop from 2 to 1; one of these trips from case B switches to bike instead. Since in Case B, car loses one of its shorter trips, its average distance per trip increases compared to Case A. This new 5-km bike trip in Case B is longer than the average bike trip, therefore, its average distance per trip increases. We see a favourable transition from car to active mode, but since the trip being lost by car is relatively short (for car) and relatively long for an active mode (bike), we see both modes increase their average trip distance. All this is achieved by maintaining the same total distance travelled, total trips travelled, and average of 5.46 km per trip, when considering all modes together. Figure 33. Theoretical example to explain change in average trip lengths per mode CASE A: CASE B: Mode Mode O-D Dist (km) Car PT Bike Total Trips O-D Dist (km) Car PT Bike Total Trips 1 to 2 1 1 1 5 7 1 to 2 1 1 1 5 7 2 to 3 5 2 8 1 11 2 to 3 5 1 8 2 11 1 to 3 10 7 1 0 8 1 to 3 10 7 1 0 8 Total Trips 10 10 6 26 Total Trips 9 10 7 26 Total distance (km) 81 51 10 142 Total distance (km) 76 51 15 142 Average distance (km) 8.10 5.10 1.67 5.46 Average distance (km) 8.44 5.10 2.14 5.46 The principles described in the above example are what guide the changes seen in the following sections. The relative increase in trip length between BAU and HA or LA scenarios is responsible for the unintuitive results. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 185 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Average trip travel time increases due to mode shift to active modes and public transport When comparing average trip costs tabulated below (Table 23), the results indicate an increase across all modes. The increase in cost for car trips is intuitive given the results in Table 10. Average travel cost per kilometre by mode. The cost increase per trip for shared mobility and public transport is due to the increase in average trip length for each of these modes. In 2018, trips using shared modes were on average 8.7 km but in the HA scenario the average is 12.6 km. Public transport trips start out as 5.0 km on average and are an average of 7.0 km by 2050 in the HA scenario. Though shared and public transport trips become 45% and 37% longer, respectively, their average trip costs only increase by 29% and 8% due to the per kilometre cost savings. In the LA scenario, trip lengths increase minimally, hence the much smaller impact on total trip cost. Table 23. Travel cost of an average trip by mode Shared Public Scenario Car mobility transport Bike Walk All modes Business as usual EUR 1.21 EUR 14.92 EUR 0.47 NA NA EUR 0.94 EUR 3.64 EUR 19.31 NA NA EUR 1.79 High ambition (+201%) (+29%) EUR 0.51 (+8%) (+91%) EUR 1.78 EUR 15.25 NA NA EUR 1.16 Low ambition (+47%) (+2%) EUR 0.48 (+1%) (+24%) Even with the public transport tarif there is substantial mode shift resulting in longer public transport trips (compared to BAU). The longer trips, combined with the per kilometre costs (tariff) increase, results in a 62% and 51% increase in cost per trip, respectively, for the HA and LA scenarios. User charging increases cost of car use to encourage mode shift When comparing travel time at the trip level, there are increases in the HA scenario across all modes despite the speed improvements shown in Table 11. Average travel time per kilometre by mode. The explanation is the same as for the increase in cost per trip. Due to the mode shift, there is a disproportionate increase in longer PT, bike and walk trips. In the LA scenario, as explained above, there is less shift in trips overall. The lack of shift to public transport trips means the trip distance remains about the same, and therefore total trip time decreases. There is minimal change in the active trips. The changes in car and shared trip times are more significant because LA scenario does not discourage Tallinn based car trips in the absence of congestion charges. 186 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 24. Travel time of an average trip by mode Shared Public Scenario Car Mobility Transport Bike Walk All Modes Business as usual 11.0 11.0 28.1 8.2 27.4 18.2 (minutes) High ambition 14.3 (+29%) 19 (+72%) 32.4 (+15%) 9.7 (+18%) 30.7 (+12%) 25.9 (+43%) (minutes) Low ambition 15 (+36%) 15.1 (+37%) 25.1 (-11%) 8.3 (+1%) 27.4 (0%) 20.6 (+13%) (minutes) Note: It was noted during the Apr 22, 2020 virtual workshop with Estonian stakeholders that the average walk times were longer than expected. ITF relied on the HHTS data from Harju/Rapla and Tallinn when calibrating the model. While data was “cleaned” to remove any trips longer than an hour, there were a significant number of trips between zones that resulted in the averages seen above. It is also important to note that the granularity of this model prevents the differentiation between very short walking trips of a few minutes and those closer to the times seen here. Combining the benefits of individual measures can be greater than the sum of its parts Table 25 summarises the individual impact of each measure if implemented in isolation. The total effect of all behaviour change measures is also listed, as is the full implementation of all measures. It is important to note that the collective impact of a group of measures is not the sum of the impact of individual measures. Each outcome from a combination of policies will differ from the sum of its parts due to interaction between policy outcomes. Note that the time and cost calculations are presented as all mode averages and are weighted by trip lengths per mode. THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 187 CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? Table 25. Percentage change in mode shares, affordability, accessibility, and CO2 emissions due to suggested urban policy measures. Affordability: Accessibility: Change in Change in CO2 emission Relative trip mode share changes compared to BAU average trip average travel reduction cost time Proposed measures HA LA HA LA HA LA HA LA Transport Transport All mode All mode Total CO2 Shared Shared Public Public average average emissions Walk Walk Bike Bike Car Car Behaviour change measures User charging – Congestion -27% 64% 44% 26% 23% 0% 0% 0% 0% 0% 53% 0% 25% 0% -9% 0% charge for Tallinn User charging – -10% 53% 19% 7% 5% 0% 0% 0% 0% 0% 52% 0% 12% 0% -4% 0% Tolling Parking pricing -3% 5% 4% 3% 3% -3% 5% 4% 3% 3% 30% 30% 2% 2% -1% -1% Reallocation of road space (in -3% -2% 1% 6% 7% -3% -2% 1% 6% 7% -2% -2% 3% 3% -2% -2% Tallinn) Off-street parking regulations (in -5% 7% 8% 5% 5% -5% 7% 8% 5% 5% -0.3% -0.3% 13% 13% -2% -2% Tallinn) Public transport -2% -2% 8% -2% -1% -2% -2% 8% -2% -1% -1.1% -1.1% -3% -3% -1% -1% improvements Vehicle fleet transition - - - - - - - - - - - - - - -29% -5% optimisation TOTAL (Behaviour -48% 138% 81% 42% 37% -13% 7% 20% 13% 13% 91% 24% 43% 13% -43% -10% change measures Cost recovery measures Increase PT tariff 0% 0% -1% 0% 0% 0% 0% -1% 0% 0% 5% 5% -0.2% -0.2% 0.2% 0.2% TOTAL (Behaviour -48% 140% 79% 43% 37% -13% 8% 19% 13% 13% 100% 29% 42% 13% -48% -11% change measures + Cost recovery) Note: Affordability and accessibility are tabulated as an all mode average. These values are weighted based on the number of passenger kilometres travelled by each mode. Therefore, policies which slow down car travel but speed 188 THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020  CHAPTER 4. REFORMS AND TRANSPORT POLICY SCENARIOS: HOW PROGRESSIVE DOES ESTONIA WANT TO BE? up other modes, like reallocation of road space for example, can result in a small overall increase in the average mode travel time, because the majority of passenger kilometres are travelled by car. Table 26 summarises the main findings from the inter-urban models, for each individual measure tested at the national level, and all together. Table 26. Summary of main findings from inter-urban models Proposed measures for the high Main passenger result Main freight result ambition scenario Railway improvements Rail share double (from 2% to 4%) Rail share +0.3% (-34 000 yearly tonnes of CO2) Electrification of railways Passenger CO2 reduced by -0.7% Rail freight CO2 reduced by -46% (-13 000 yearly tonnes of CO2) (-25 000 yearly tonnes of CO2) Car fleet transition and optimisation Passenger CO2 reduced by -30% - (-508 000 yearly tonnes of CO2) Rail share double (from 2% to 4%) Rail share +0.3% All measures together Passenger CO2 reduced by -30% Rail freight CO2 reduced by -46% (-544 000 yearly tonnes of CO2) (-25 000 yearly tonnes of CO2) THE FUTURE OF PASSENGER MOBILITY AND GOODS TRANSPORT IN ESTONIA © OECD/ITF 2020 189 The Future of Passenger Mobility and Goods Transport in Estonia Input Study for the Estonian Transport and Mobility Master Plan This report reviews strategic planning in Estonia’s transport sector to support the development of a Transport and Mobility Master Plan 2021-30 for Estonia. It assesses ten key aspects of transport policy with recommendations for reform. The impact of selected proposed reforms are examined under different scenarios modelled for this study. Published: 09/2020 | Photo credit: OECD International Transport Forum 2 rue André Pascal F-75775 Paris Cedex 16 +33 (0)1 73 31 25 00 [email protected] This Action was carried out with funding by www.itf-oecd.org the European Union via the Structural Reform Support Programme and in cooperation with the European Commission  Reisi- ja kaubatranspordi tulevik Eestis Sisenduuring Eesti transpordi ja liikuvuse arengukavaks Juhtumipõhine poliitikaanalüüs  Rahvusvahelisest Transpordifoorumist Rahvusvaheline Transpordifoorum (International Transport Forum – ITF) on valitsustevaheline organisatsioon, kuhu kuulub 60 liikmesriiki. Organisatsioon tegutseb transpordipoliitika mõttekojana ja korraldab transpordiministrite iga-aastast tippkohtumist. ITF on ainus üleilmne asutus, mis käsitleb kõiki transpordiliike. ITF on poliitiliselt sõltumatu ja kuulub halduslikult OECD alla. ITF-i töö seisneb inimeste elu parandavate transpordipoliitikameetmete väljatöötamises. Meie missioon on aidata mõista paremini transpordi rolli majanduskasvus, keskkonnasäästlikkuses ja sotsiaalses kaasatuses ning suurendada rahva teadlikkust transpordipoliitika teemadest. ITF korraldab ülemaailmset dialoogi transpordi parendamise kohta. Me tegutseme kõiki transpordiliike puudutavate poliitikaküsimuste arutamise ja poliitiliste eelläbirääkimiste platvormina. Analüüsime suundumusi, jagame teadmisi ning edendame teabevahetust transpordi valdkonnas tegutsevate otsuselangetajate ja kodanikuühiskonna vahel. ITF-i iga-aastane tippkohtumine on maailma suurim transpordiministrite kohtumine ja tähtsaim ülemaailmne platvorm transpordipoliitika valdkonnas dialoogi pidamiseks. Foorumi liikmed on: Albaania, Armeenia, Argentiina, Austraalia, Austria, Aserbaidžaan, Valgevene, Belgia, Bosnia ja Hertsegoviina, Bulgaaria, Kanada, Tšiili, Hiina (Rahvavabariik), Horvaatia, Tšehhi Vabariik, Taani, Eesti, Soome, Prantsusmaa, Gruusia, Saksamaa, Kreeka, Ungari, Island, India, Iirimaa, Iisrael, Itaalia, Jaapan, Kasahstan, Lõuna-Korea, Läti, Liechtenstein, Leedu, Luksemburg, Malta, Mehhiko, Moldova Vabariik, Montenegro, Maroko, Holland, Uus-Meremaa, Põhja-Makedoonia, Norra, Poola, Portugal, Rumeenia, Venemaa Föderatsioon, Serbia, Slovaki Vabariik, Sloveenia, Hispaania, Rootsi, Šveits, Tuneesia, Türgi, Ukraina, Araabia Ühendemiraadid, Ühendkuningriik ja Ameerika Ühendriigid. Rahvusvaheline Transpordifoorum 2 rue André Pascal F-75775 Paris Cedex 16 [email protected] www.itf-oecd.org 5 Originaalis avaldatud OECD poolt inglise keeles pealkirjaga: The Future of Passenger Mobility and Goods Transport in Estonia. Input Study for the Estonian Transport and Mobility Master Plan. © 2020, https://www.itf-oecd.org/future-passenger-mobility-goods-transport-estonia See tõlge ei ole OECD poolt koostatud ning seda ei tohiks pidada ametlikuks OECD tõlkeks. Tõlkekvaliteet ning selle kooskõla teose algkeelse tekstiga on ainuüksi tõlke autori või autorite kohustus. Originaaltöö ja tõlke vaheliste lahknevuste korral loetakse kehtivaks ainult originaalteose tekst. © 2020 Eesti Majandus- ja Kommunikastiooniministeeriumile käesoleva tõlke osas.  Eessõna Eesti oli üks esimesi Euroopa Liidu vastloodud struktuurireformi toetusprogrammi (Structural Reform Support Programme – SRSP) kasutajaid. SRSP-s osalemine võimaldas Eestil teha ambitsioonikaid ettevalmistusi uue riikliku transpordi ja liikuvuse arengukava koostamiseks aastateks 2021–2030. See aruanne on nimetatud arengukava üks peamistest sisenditest. See on valminud SRSP rahastatud aastapikkuse uurimisprojekti tulemusena, mille korraldas OECD juurde kuuluv Rahvusvaheline Transpordifoorum koostöös Euroopa Komisjoni struktuurireformi tugiteenistusega (Structural Reform Support Service – SRSS). Transpordikava kõige selgemini tajutavad osad puudutavad taristu rajamise otsuseid, näiteks seda, millised maantee- või raudtee-ehitusprojektid tuleks ellu viia, parandamaks kodanike liikumisvõimalusi või muutmaks kaubavood sujuvamaks. Ent taristuinvesteeringud kujutavad endast vaid transpordipoliitika „sabaosa“, ning ambitsioonikas transpordiinvesteeringute kava üksi pole veel märk reformist. Investeerimiskavade taga peitub arvukalt valikuid, mis üheskoos moodustavadki selle, mida nimetatakse transpordipoliitikaks. Need valikud on seotud sellega, kuidas poliitilisi otsuseid tehakse, kuidas transpordisektor on korraldatud ning millised stiimulid taristuettevõtjatele ja taristukasutajatele loodud on. Aruandes keskendutakse kõigile neile kolmele strateegilise planeerimise ja poliitika kujundamise aspektile kõigi transpordiliikide puhul. Samuti esitatakse soovitusi ulatuslike reformide tegemiseks igas valdkonnas. Aruanne rajaneb hoolikal ja põhjalikul, nii kvalitatiivsel kui ka kvantitatiivsel analüüsil. Parameetrid määrati kindlaks koostöös Eesti Majandus- ja Kommunikatsiooniministeeriumiga, mis on riigis transpordivaldkonna eest vastutav ministeerium. Et aruanne oleks sisutihe ja pakuks huvi laiale lugejaskonnale, ei ole püütud selles kirjeldada üksikasjalikult Eesti praegust transpordi- ja liikuvussüsteemi, eriti selle hästitoimivaid osi. Selle asemel keskendutakse olemasolevatele probleemidele ja nende lahendamise võimalustele. Selleks sisaldab see ka simulatsioonivahendit: strateegilist mudelit, mida saab kasutada Eestis transpordipoliitikaalaste otsuste teadlikumaks langetamiseks, kuni töötatakse välja täielikult täpsustatud riiklik transpordimudel. Transpordi süsinikujalajälge on Eestis võimalik oluliselt vähendada, sõltuvalt sellest, kui ambitsioonikalt riik järgmistel aastakümnetel tegutseda soovib. Selle (ja muude peamiste poliitiliste eesmärkide) saavutamiseks võib olla vaja vähendada teedeehitust. Selle asemel tuleb elanikkonda ajendada rohkem jalgsi, jalgrattaga ja ühistranspordiga liiklema. Kaubaveo valdkonnas on tulevikupilt vähem selge. Suurimaks katsumuseks saab Eesti ümberkujundamine Venemaa ja Euroopa vahelisest ühenduslülist sillaks Baltimaade ja Lõuna-Euroopa vahel. Edu sõltub eelkõige sellest, kas Eesti suudab oma huvid naaberriikide omadega kooskõlla viia; lihtsalt taristu juurde ehitamisest ei piisa. Samas ei tohiks selle nihke elluviimise juures unustada transpordisektori CO2-heite vähendamise vajadust ega tuua transiitliikluse toetamisele ohvriks taristukulude katmist. Ülemaailmne Covid-19 pandeemia, mis puhkes selle aruande koostamise viimases tööetapis, on inimeste elu ja majandust tugevalt raputanud. Koroonaviiruse kriisi tekitatud tohutud, kuid loodetavasti ajutised probleemid tulid ilmsiks hetkel, mil neid polnud enam võimalik analüüsis täielikult kajastada. Kuid koos selle aruandega Eesti valitsusele esitatav simulatsioonivahend võimaldab aruandes Eesti transpordisektori 5 tuleviku kohta koostatud stsenaariume usaldusväärsete pandeemia mõju kajastavate andmete ilmnemisel uuendada. Young-Tae Kim Peasekretär Rahvusvaheline Transpordifoorum, OECD Henrik Hololei Peadirektor Liikuvuse ja Transpordi Peadirektoriaat Euroopa Komisjon Mario Nava Peadirektor Struktuurreformide Toe Peadirektoriaat Euroopa Komisjon  Tänusõnad Projekti juhtimise ja -koostamise eest vastutasid Dejan Makovšek ja Eric Jeanniere, valmimisse panustasid lisaks Rex Deighton-Smith, Jagoda Egeland, Francisco Furtado, Lucie Kirstein, Juliette Lassman, Peter Mackie, Malithi Fernando, Luis Martinez, Olaf Merk, Tatiana Samsonova, Katja Schechtner, Klaas Westerkamp, Elisabeth Windisch ja Tom Worsley. Kvaliteeditagamisega tegelesid Jari Kauppila ja Stephen Perkins. Samuti soovime tänada toetuse eest Eesti valitsust, eriti Johann Peetret, ja neid paljusid Euroopa Komisjoni ametnikke, kes aitasid koostöö tõhusaks muuta, osalesid intervjuudes või andsid tagasisidet selle projekti kavandi väljundite kohta. Viimasena soovime tänada ITF-i kommunikatsioonimeeskonna liikmeid, kes tegid väsimatult tööd selle nimel, et aidata meil seda aruannet täiustada, sealhulgas täpsemalt Michael Kloth, Edwina Collins ja Hilary Gaboriau.  Sisukord Eessõna ...................................................................................................................................... 3 Tänusõnad.................................................................................................................................. 5 Sisukord ..................................................................................................................................... 6 Terminite seletus...................................................................................................................... 11 Lühendite loetelu ..................................................................................................................... 13 Lühikokkuvõte .......................................................................................................................... 15 1. peatükk. Aruande ülevaade ja peamised leiud...................................................................... 19 1.1. Milliseid poliitikareforme tuleks prioriseerida? ................................................................. 19 1.2. Kuidas tuleks mõõta reformide edenemist ja selle kohta teavet jagada? ......................... 27 1.3. Kui ambitsioonikad peavad olema transpordipoliitika reformid, et saavutada olulisi edusamme? ................................................................................................................................................. 29 Märkused ................................................................................................................................. 31 Kasutatud kirjandus .................................................................................................................. 32 2. peatükk Peamiste transpordipoliitika valdkondade hinnang ................................................. 33 2.1. Asutuste struktuur............................................................................................................. 33 2.2. Taristu kavandamine ja projekti valimine .......................................................................... 42 2.3. Taristuvaldkonna hanked .................................................................................................. 52 2.4. Taristu rahastamine ja erarahastamise roll ....................................................................... 60 2.5. Kasutajate käitumise ja ühistranspordi poliitika suunamine ............................................. 69 2.6. Raudtee kaubavedu ja taristu ............................................................................................ 82 2.7. Autoveo reguleerimine...................................................................................................... 91 2.8. Merenduspoliitika ............................................................................................................. 99 2.9. Lennunduspoliitika .......................................................................................................... 107 2.10. Tuleviku liikuvus: kohanemine tehnoloogia ja kliima muutustega ................................ 114 Märkused ............................................................................................................................... 132 Kasutatud kirjandus ................................................................................................................ 136 3. peatükk Transpordipoliitika eesmärgid ja edu hindamine .................................................. 147 3.1 Transpordipoliitika eesmärkide määratlemine ................................................................. 147 3.2 Näitajate raamistiku määratlemine .................................................................................. 148 3.3 Eesti transpordipoliitika näitajate raamistiku väljatöötamine .......................................... 149 Märkused ............................................................................................................................... 157 Kasutatud kirjandus ................................................................................................................ 158 Lisa 3.1. Näitajate raamistiku koostoime kogu ELi hõlmavate transpordieesmärkidega .......... 159 4. peatükk Reformid ja transpordipoliitika stsenaariumid: Kui edumeelne tahab Eesti olla?... 162 6 4.1 Poliitikastsenaariumid esindavad mitmesuguseid transpordimeetmetest tulenevaid võimalikke mõjusid................................................................................................................................... 163 4.2 Reisijatevedu linnas kõrge ja madala ambitsiooniga stsenaariumites .............................. 171 4.3 Riiklik reisijatevedu kõrge ja madala ambitsiooniga stsenaariumites ............................... 178 4.4 Rahvusvaheline reisijatevedu kõrge ja madala ambitsiooniga stsenaariumites ............... 186 4.5 Kaubavedu kõrge ja madala ambitsiooniga stsenaariumites ............................................ 186 4.6 Poliitikareformide prioriseerimine poliitikaeesmärkide saavutamiseks ........................... 189 Kasutatud kirjandus ................................................................................................................ 191 Lisa 4.1. Strateegiliste mudelite väljatöötamine ..................................................................... 192 Strateegilised mudelid järgivad väljakujunenud meetodit ..................................................... 192 Andmete kättesaadavus määrab mudeli robustsuse ............................................................. 193 Rahvusvaheline reisijamudel .................................................................................................. 193 Kaubaveo mudel..................................................................................................................... 194 Kasutajasõbralikud vahendid on prioriteetsed ....................................................................... 195 Lisa 4.2. Taskukohasus ja ligipääsetavuse modelleerimistulemused ...................................... 196 Linnamudeli taskukohasuse ja ligipääsetavuse tulemused reiside kaupa .............................. 196 Üksikutest meetmetest saadava kasu ühendamine võib olla suurem kui selle osade summa198 Joonised Joonis 1. Eesti transpordisektori kavandatud asutuste struktuur .............................................. 37 Joonis 2. Olulise projekti hindamine ......................................................................................... 47 Joonis 3. Lõppväärtus vs. lepingu sõlmimise hind; lepingu väärtused > miljon eurot; 2007–2017 perioodi maanteelepingud ....................................................................................................... 54 Joonis 4. Riigile kuuluv taristu haldusettevõte .......................................................................... 65 Joonis 5. Diiselkütuse ja bensiini aktsiisid Euroopa Liidu liikmesriikides (mai, 2020) ................. 70 Joonis 6. CO2 heitkoguse maht kogutonnides reisijateveo liigi kaupa....................................... 73 Joonis 7. Raudtee kaubaveo (t/km) suundumused Eestis, 2007–18.......................................... 84 Joonis 8. Rahvusvaheliste kaubavedude suhe riikide kaupa Eesti raudtee- ja maanteesektoris (2018) ................................................................................................................................................. 85 Joonis 9. Kaubaveo raudteekasutustasud Euroopa Liidu riikide kaupa (2016)........................... 86 Joonis 10. Kasvuhoonegaaside heitekogused (tonnides) elaniku kohta (2017) ......................... 88 Joonis 11. Konteinerite raudteeveo suundumused võrreldes kõigi kaupadega (tonnides) ........ 90 Joonis 12. 2016. aastal Euroopa Liidu, Šveitsi, Norra, Ameerika Ühendriikide, Kanada ja Jaapani kaubaveo üldine tulude ja kulude suhe .................................................................................... 93 Joonis 13. Kütuseaktsiis Euroopa Liidu liikmesriikides (2019. a juuli) ........................................ 94 Joonis 14. Kütuseaktsiis Euroopa Liidu liikmesriikides (2020. a mai) ......................................... 95 Joonis 15. Eesti sadamate kaubamaht aastatel 2002–2018 .................................................... 100 7  Joonis 16. Tonnaažimaks ühe laeva kohta olenevalt laeva netotonnaažist ............................. 103 Joonis 17. Sihtkohad, kuhu Tallinnast saab lennata (2019. aasta suvine graafik)..................... 109 Joonis 18. Raamistik, mille alusel lõimida kliimamuutustega kohanemine transporditaristu kavandamisse ......................................................................................................................... 129 Joonis 19. FHWA transporditaristu haavatavuse hindamise ja kohandamise raamistik ........... 131 Joonis 20. Eesti riikliku reisijatemudeli ühendatud raudteekoridorid ja tsoonisüsteem .......... 167 Joonis 21. Linnamudeli katvuse ja tsoneerimissüsteemi ulatus Harju maakonnas / Raplas ..... 172 Joonis 22. Igapäevane linnareiside osakaal transpordiliikide kaupa vastavalt stsenaariumile.. 173 Joonis 23. Päevane reisijakilomeetrite osakaal linnaliikluses vastavalt stsenaariumile ............ 174 Joonis 24. Reisijateveost linnapiirkonnas tulenev modelleeritud päevane CO2 heitkogus stsenaariumi lõikes ...................................................................................................................................... 175 Joonis 25. Igapäevaste rongireiside muutus vastavalt stsenaariumile..................................... 179 Joonis 26. Igapäevane riigisisese reisijateveo transpordiliigi osakaal vastavalt stsenaariumile 179 Joonis 27. Igapäevaste rongireisijakilomeetrite muutus vastavalt stsenaariumile ................... 180 Joonis 28. Igapäevaste reisijakilomeetrite osakaal riigisiseses reisijateveos vastavalt stsenaariumile ............................................................................................................................................... 180 Joonis 29. Riiklikust reisijateveost tulenevad igapäevased süsinikdioksiidi heitkogused stsenaariumide kaupa ..................................................................................................................................... 181 Joonis 30. Süsinikdioksiidi heitkoguste muutus, mis tuleneb riiklikust rongisõidust, võrdlus mahutist sõidukisse ja well-to-wheel vahel ............................................................................................ 182 Joonis 31. Muutus auto- ja bussisõidu põhjustavas päevases süsinikdioksiidi heitkoguses stsenaariumi kaupa ..................................................................................................................................... 182 Joonis 32. Transpordi modelleerimise neljaetapiline metoodika reisinõudluse määratlemiseks ja CO2 heitkoguse arvutamiseks ........................................................................................................ 192 Joonis 33. Teoreetiline näide reisi keskmise pikkuse muutumise kohta transpordiliikide lõikes197 Tabelid Tabel 1. Transpordipoliitika tulemuslikkusnäitajate raamistik – väljavõte ................................. 28 Tabel 2. Raudtee kaubaveo põhinäitajad, võrdlus teiste ELi riikidega ....................................... 82 Tabel 3. Valitud näitajad, mida kasutatakse Eesti transpordipoliitika edusammude hindamiseks ja esitamiseks............................................................................................................................. 152 Tabel 4. Valitud transpordiliigipõhised näitajad, mida kasutatakse Eesti transpordipoliitika edusammude hindamiseks ja esitamiseks .............................................................................. 153 Tabel 5. .................................................................................................................................. 159 Tabel6. Linnapõhise reisijaveomeetmete modelleerimine kõrge ja madala ambitsiooniga stsenaariumide korral............................................................................................................. 164 8 Tabel 7. Riiklike reisijaveomeetmete modelleerimine kõrge ja madala ambitsiooniga stsenaariumide korral...................................................................................................................................... 167 Tabel 8. Rahvusvaheliste reisija- ja kaubaveomeetmete modelleerimine kõrge ja madala ambitsiooniga stsenaariumide korral...................................................................................... 170 Tabel 9. Modelleeritud näitajad, et jälgida poliitikameetmete mõju transpordivaldkonna tulemustele ............................................................................................................................................... 171 Tabel 10. Keskmine sõidukulu kilomeetri kohta vastavalt transpordiliigile .............................. 176 Tabel 11. Keskmine sõiduaeg (min) kilomeetri kohta vastavalt transpordiliigile...................... 177 Tabel 12. Muutus igapäevastes rongireisijakilomeetrites raudteekoridori ja stsenaariumi kaupa 2050. aastal...................................................................................................................................... 181 Tabel 13. Teede parendamisest tulenevad eeldused ............................................................. 183 Tabel 14. Parendatud tee liiklustulemused lõigu kohta (keskmine päevane liiklus)................. 184 Tabel 15. Parendatud tee liiklustulemused koridori kohta (igapäevaste autosõitude koguarv)185 Tabel 16. Tee parandamise taskukohasuse tulemused (kogu riigis) ........................................ 185 Tabel 17. Maantee parendamise katsete ligipääsetavuse tulemused (kogu riigis) .................. 186 Tabel 18. Praegune kaubavedu raudteel ................................................................................ 187 Tabel 19. Näide raudteetranspordi kulu vähenemise mõjust kasutades teoreetiliste lähte-sihtkoha paaride elastsust .................................................................................................................... 187 Tabel 20. Raudtee elektrifitseerimise mõju kaubavoogudele järgmiste näitajate kaupa kaubagrupp kahe alternatiivse stsenaariumi jaoks ..................................................................................... 188 Tabel 21. CO2 heitekoefitsientide prognoosid diisel- ja elektrikaubarongidele ühe tonnkilomeetri kohta ...................................................................................................................................... 188 Tabel 22. Saadud CO2 heitkogus raudteetelje kohta kahes alternatiivses stsenaariumis ......... 188 Tabel 23. Keskmine reisikulu transpordiliikide kaupa.............................................................. 197 Tabel 24. Keskmise reisi jaoks kuluv aeg (min) transpordiliikide kaupa ................................... 198 Tabel25. Transpordiliikide osakaalu, taskukohasuse, ligipääsetavuse ja CO2 heitkoguse muutus protsentides soovitatud linnapoliitika meetmete tõttu .......................................................... 199 Tabel 26. Kokkuvõte linnadevaheliste mudelite peamistest leidudest .................................... 200 Kastid Tekstikast 1. Tallinna tasuta ühistransport............................................................................... 71 Tekstikast 2. Autoveoteenuste süsinikuheite vähendamine Ühendkuningriigis ........................ 98 Tekstikast 3. Uus-Lõuna-Walesi osariigi tuleviku transporditehnoloogia tegevuskava ............ 121 Tekstikast 4. Põhimõtetel rajanev lähenemisviis uute liikuvusteenuste reguleerimiseks ........ 126 9  Tekstikast 5. Transpordisüsteemide kohandamine kliimamuutuste ja äärmuslike ilmastikuoludega ............................................................................................................................................... 128 10  Terminite seletus Termin Määratlus, seletus Kabotaaž Ühe riigi sisene kaupade või reisijate vedu kahe koha vahel teise riigi veoettevõtja poolt. Ühenduse tegevusluba EL-i tegevusluba kaupade vedamiseks maanteed mööda EL-i või Euroopa Majanduspiirkonna (EMP) riikidesse või läbi nende riikide. ECMT tegevusload Tegevusload kaupade vedamiseks maanteed mööda Euroopa Transpordiministrite Konverentsi (ECMT) liikmesriikidesse või läbi nende riikide (kahepoolsed ja kolmandate riikide veod). Euro-klass EL-i sõidukite heitgaasistandard Transpordi väliskulud Väliskulud on transpordikasutajate tekitatud kulud, mida ei maksa kinni viimased, vaid ühiskond tervikuna, sealhulgas ummikud, õhusaaste, kliimamuutus, õnnetused, müra, aga ka üles- ja allavooluprotsessid, looduse ja loodusmaastikule tekitatud kahju ning lisakulud linnapiirkondades. Suure veovõimega sõiduk Suure veovõimega sõiduk (High-Capacity Vehicle – HCV) on kaubaveok, mis on raskem või pikem (või mõlemat) kui sõidukid, millel on praegu lubatud üldises teedevõrgus liigelda. Logistika toimivuse indeks Logistika toimivuse indeks (Logistics Performance Index – LPI) on interaktiivne võrdlusvahend, mis on loodud selleks, et aidata riikidel tuvastada nende kaubanduslogistika toimivusega seotud raskused ning võimalused toimivuse parandamiseks. LPI põhineb ülemaailmsel kohapeal tegutsevate veoettevõtjate (ülemaailmsete ekspediitorite ja kiirveoettevõtjate) uuringul. Liikuvuspakett Euroopa Komisjoni liikuvuspakett koosneb kolmest Euroopa Liidu sisese kaupade maanteeveo juhtimist puudutavast algatusest. See kujutab endast seni suurimat EL-i maanteetranspordi eeskirjade muudatust, hõlmates selle valdkonna paljusid eri tahke. Rail Baltic Rail Baltic on uus raudteetaristuprojekt, mille eesmärk on ühendada Balti riigid Euroopa raudteevõrku. Projekti kuuluvad viis Euroopa Liidu riiki: Poola, Leedu, Läti, Eesti ja kaudselt ka Soome. Selle raames ühendatakse omavahel Helsingi, Tallinn, Pärnu, Riia, Panevežys, Kaunas, Vilnius ja Varssavi. Teemaksukleebis Teemaksukleebiste süsteem on sõidukitele rakendatav teekasutusmaksude süsteem, mille puhul selle asemel, et nõuda tasu maantee kasutamise eest läbitud vahemaa 11  alusel, antakse luba maantee kasutamiseks kindlal ajaperioodil. tkm Tonnkilomeeter – raudteed mööda ühe tonni kauba vedamisel ühe kilomeetri kaugusele tehtud töö mahu ühik. Rongikilomeeter Mõõtühik, mis kajastab rongi liikumist ühe kilomeetri võrra (tegelikult läbitud vahemaa). TEU Kauba mahtu väljendav mõõtühik. Üks TEU (Twenty-foot Equivalent Unit) on võrdne ühe standardse 20 jala pikkuse konteineri mahuga. Põhimõte „saastaja maksab“ Põhimõte, mille kohaselt saastajad katavad kulud, mis tehakse saaste vältimiseks, piiramiseks ja kõrvaldamiseks, et vältida kahjulikke mõjusid inimeste tervisele või keskkonnale. Keskkonnaalane bonus-malus- Süsteem, mis hõlmab nii maksuvähendusi kui ka süsteem saastajatele (nt sadamates enim saastavatele laevadele) kõrgemate maksumäärade kohaldamist. Tonnaažimaks Tonnaažimaksu kohaldamisel arvutatakse maksustatav tulu maksustatavate laevade netotonnaaži alusel. Lennuühenduvus Reisijate ja kaupade õhu kaudu sihtkohta toimetamise võimalikkus ja lihtsus. Selles peatükis mõeldakse lennuühenduvuse all seda, kui palju lennuühendusi lennujaama kaudu kättesaadavad on, nii otseselt kui ka kaudselt (st teistesse lennujaamadesse viivate ümberistumisega lendude näol). Lähte- ja sihtkoha turg Lähte- ja sihtkoha turg (ingl Origin-Destination) Turg, mis koosneb reisijatest, kelle jaoks konkreetne lennujaam on soovitav lähtekoht või sihtkoht. Pindjuurdepääs Juurdepääs lennujaamadele maismaa- ja veeteede kaudu. Ühikuhindade andmebaas Andmebaas, kus jäädvustatakse taristu- või muude hangete raames esitatud pakkumustes nimetatud tööde või materjalide ühikuhinnad (nt terase või betooni ühe kuupmeetri hind). Riigihangete register Andmebaas, kus jäädvustatakse olulisemad andmed hankemenetluste ja nende tulemuste kohta (nt menetluse liik, pakkujate arv, hankelepingu eeldatav maksumus, hanke võitja jms). 12  Lühendite loetelu ACI Rahvusvaheline Lennujaamade Nõukogu Kommertsõhusõiduki õhkutõus või maandumine (ingl air traffic ATM movement) CAA Lennuamet (ingl Civil Aviation Authority) CBA Tasuvusanalüüs (ingl cost/benefit analysis) SRÜ Sõltumatute Riikide Ühendus CNG Suru-maagaas EASA Euroopa Lennundusohutusamet ECA Heite piiramise piirkond (ingl emission control area) ECAA Euroopa ühine lennunduspiirkond ECMT Euroopa Transpordiministrite Konverents EMP Euroopa Majanduspiirkond EMS Euroopa moodulsüsteem ERAA Eesti Rahvusvaheliste Autovedajate Assotsiatsioon EL Euroopa Liit EVR Eesti Raudtee (taristuettevõtja) EVR Cargo EVR-i kaubarongide käitamisega tegelev tütarettevõte SKT Sisemajanduse kogutoodang KHG Kasvuhoonegaas HDM Maanteede arendamine ja hooldamine (ingl highway development and maintenance) HEATCO Euroopa ühtlustatud lähenemisviisid transpordi maksumuse ja transpordiprojektide hindamise jaoks HELCOM Helsingi komisjon ehk Läänemere merekeskkonna kaitse komisjon ICAO Rahvusvaheline Tsiviillennunduse Organisatsioon IM Taristuettevõtja (ingl infrastructure manager) IMO Rahvusvaheline Mereorganisatsioon IRU Rahvusvaheline Maanteetranspordi Liit ITF OECD Rahvusvaheline Transpordifoorum LPG Veeldatud naftagaas LPI Logistika toimivuse indeks LPI Logistika toimivuse indeks MA Liikuvusamet (ingl Mobility Agency; kavandatav asutus) MaaS Liikuvus kui teenus (ingl Mobility as a Service) 13  MKM Majandus- ja Kommunikatsiooniministeerium RaM Rahandusministeerium NOx Lämmastiku oksiid OD Lähtekoht-sihtkoht (ingl Origin-Destination) OECD Majanduskoostöö ja Arengu Organisatsioon PIARC Maailma Teede Assotsiatsioon PM Tahked osakesed (ingl particulate matter) PPP Avaliku ja erasektori partnerlus R&D Uurimis- ja arendustegevus RB Rail Baltic RIA Normatiivakti mõju analüüs (ingl regulatory impact analysis) RSA Regulatiiv- ja järelevalveasutus (kavandatav) SOE Riigi omandis olev ettevõte (ingl state-owned enterprise) SOx Väävli oksiid SUMP Säästva linnaliikuvuse kava TEN-T Üleeuroopaline transpordivõrk TLL Tallinna lennujaam TVK Tehniliste Vahendite Keskus (kavandatav asutus) TTJA Tarbijakaitse ja Tehnilise Järelevalve Amet TTAK Transporditehnoloogia arengukava LOÜ Lenduv orgaaniline ühend v-tk Sõiduki tonnkilomeeter 14  Lühikokkuvõte Mida me tegime Selles aruandes antakse ülevaade Eesti transpordisektori strateegilisest planeerimisest, et toetada Eesti transpordi ja liikuvuse üldkava väljatöötamist. Lühikokkuvõte annab üldise ülevaate aruande peamistest leidudest ja järeldustest. Põhjalikum ülevaade on toodud esimeses peatükis, mis sisaldab ka viiteid aruande vastavatele jaotistele. Aruande jaoks tehtud uuring koosnes kolmest osast:  Eestiga koostöös välja valitud kümne olulisima transpordipoliitika tahu üldine hinnang ühes reformisoovitustega;  otsusetegijate vastutusalade ning põhjendatud otsuste tegemiseks teabe kasutamise suutlikkuse analüüs ühes soovitustega selle kohta, millisel tasemel transpordipoliitika eesmärgid kindlaks tuleks määrata ja kuidas nende poole pürgimisel saavutatud edu tuleks mõõta;  valitud väljapakutud reformide mõju mudeldamine eri stsenaariumide korral. Kuna Eesti riik ei ole veel riiklikku transpordimudelit koostanud, töötas Rahvusvaheline Transpordifoorum (ITF) stsenaariumide kvantifitseerimiseks välja kõiki transpordiliike (välja arvatud lennundus) hõlmava üldmudeli. Selle uuringu jaoks tehtud analüüside raames käidi Eestis fakte kogumas ning analüüsiti Eesti õigusakte, poliitilisi dokumente ja asjakohaseid andmeid. Lisaks võeti arvesse varasemaid Euroopa Liidu (EL), Rahvusvahelise Valuutafondi (IMF), Maailmapanga, OECD ja teiste organisatsioonide koostatud hinnanguid Eesti transpordipoliitika ja süsteemide kohta. Mida me leidsime Eesti on taasiseseisvumise järel saavutanud märkimisväärset majanduslikku edu. Seda on toetanud kõiki valitsustasandeid hõlmav läbimõeldud strateegilise planeerimise raamistik, mis koosneb perioodiliselt uuendatavatest kümneaastastest kavadest ja annab ühtse aluse investeeringuteks võtmesektoritesse, sealhulgas transport. Viimastel aastatel on tehtud jõupingutusi kavade, ministeeriumide ja ametite konsolideerimiseks, et parandada tegevuste valdkondadevahelist kooskõlastamist ja järjepidevust. Vaatamata sellele valdavalt positiivsele kontekstile, on aga võimalik, et Eesti sisetranspordisüsteemi praegune olek ja riigi vähene rahvusvaheline ühendatus võivad hakata pidurdama Eesti majanduse edasist arengut. Uuringu käigus tuvastatud peamised probleemid on järgmised.  Projektide kindlaksmääramise, hindamise ja valimise protsessides esinevad nõrkused, mis vähendavad oluliselt taristule tehtud kulutuste tõhusust ja suurendavad kulusid.  Need probleemid on tingitud ka praegusest asutuste struktuurist. Sealjuures on üks põhimure suure tehnilise võimekusega strateegilise poliitika osakonna puudumine Majandus- ja Kommunikatsiooniministeeriumis (MKM). 15   Rail Balticu projektiga seoses esineb olulisi poliitilisi riske. On küllalt tõenäoline, et kulud suurenevad, mis võib proovile panna Eesti võime rahastada muid olulisi transpordiprojekte.  Taristuhankeprotsessides esinevad süsteemsed probleemid suurendavad oluliselt taristuga seotud kulusid. Pakkujate konkurentsivastast koostööd on võimalik ära hoida, kasutades olemasolevaid andmeid.  Ühistranspordisüsteemi rahaline jätkusuutlikkus on ohus. Ühistransporditasude kaotamise tulemusena on tulud vähenenud ning ühistranspordi kasutajate arv pole suurenenud. Poliitika, mille eesmärk on suurendada võrdsust, muutes väiksema sissetulekuga inimestele ühistranspordi taskukohasemaks, pole olnud tulemuslik.  Kehtiv kasutusmaksude süsteem on ebatõhus. Maanteekaubaveo valdkonnas eriti sõltutakse liigselt kütuseaktsiisist. See takistab maanteetaristut haldava organisatsiooni rahastamise sõltumatuse saavutamist ja uute maanteetaristu rahastamise süsteemide rakendamist.  Taristuvarade haldust on võimalik paremini korraldada ja on võimalik luua stiimuleid tõhususe suurendamiseks. Maantee- ja raudteekaubaveo, sadamate ja laevanduse ning lennunduse valdkonnas on konkreetseid lisaprobleeme ja lahtisi otsi. Neist olulisim on taristu alakasutamine Venemaa-suunalise raudteetransiitliikluse vähenemise tõttu ning tähelepanu põhja- ja lõunasuunalise koridori arendamisele suunavad poliitikameetmed. Mida me soovitame Teha analüüse enne otsuste langetamist; suurendada transpordisüsteemi mudeldamise suutlikkust, et toetada poliitika kujundamist; ning jagada teavet saavutatud edu kohta lihtsasti mõistetavate tulemusnäitajate kaudu Eesti peaks kasutusele võtma projektide kavandamise ja valimise protsessi, milles analüüse kasutatakse otsuste tegemise toetamiseks, mitte juba tehtud otsuste õigustamiseks. Selles protsessis oleks transpordimudelite kasutamine hädavajalik. Mudeldamine võib anda olulist teavet olemasoleva transpordisüsteemi toimimise kohta ning aidata taristut ja tegevusi paremini kavandada. Praegu puudub Eestil transpordi strateegilise mudeldamise võime; niisuguste mudelite jaoks aluse väljatöötamine riigile oli selle projekti üks põhiülesandeid. Reformidele toetuse leidmine nõuab muu hulgas transpordisüsteemi toimivuse kohta teabe jagamist selliselt, et kasutajad tunnevad kirjeldatus ära ka oma kogemuse. Kergesti mõistetavad tulemusnäitajad tagavad parema läbipaistvuse, suurendades seeläbi valitsuse plaanide usaldusväärsust ja aidates selgemini näha vajadust reformide järele. Reformida transpordipoliitika kujundamise aluseks olevat asutuste struktuuri. Koondada strateegiline planeerimine ühte kohta, keskenduda tõhususe stiimulitele ja toetada sõltumatust otsuste tegemisel Eestis käimasoleva transpordisektori organisatsioonilise reformi kolm põhieesmärki peaksid olema planeerimisprotsessi ühtsustamine, tõhususe premeerimine ja otsuste erapooletu langetamise tagamine. Strateegilise planeerimise funktsioon tuleks koondada Majandus- ja Kommunikatsiooniministeeriumi alla loodud eraldiseisvasse strateegilise poliitika osakonda. See osakond vastutaks lisaks projektide hindamise metoodika standardite kehtestamise eest ning nõustaks ministreid projektide valimisel. Eesti peaks transpordisektorit tõhustama stiimulipõhise reguleerimise kaudu, täpsemalt rakendades reguleeritavate varade väärtuse mudelit. Selleks peaksid olulisemat transporditaristut, sealhulgas maanteid, haldama riigiettevõtted, mitte üks kõigega tegelev transpordiamet. Kavandatavale regulatiiv- ja järelevalveasutusele 16 tuleks teha ülesandeks töötada välja nendele ettevõtetele rakendatavad tõhususe stiimulid (stiimuleid loovad normatiivid). Võtta riskianalüüside tulemusi arvesse projektide väljatöötamise käigus otsuste tegemisel Pidev riskianalüüs ja oskuslik riskijuhtimine on hädavajalikud. Riskianalüüsi tulemusena peaksid selguma projekti riski alusel korrigeeritud maksumus ja kasu ning neid tuleks arvesse võtta projektiga seotud oluliste küsimuste kohta otsuste tegemisel kõigis etappides. See tagab otsusetegijate teadlikkuse peamistest riskidest ajal, mil neid on veel võimalik maandada. Uuendada põhjalikult taristuhangete süsteemi Täiustatud hankesüsteem võib taristukulusid oluliselt vähendada. Reformi fookus peaks Eestis olema konkurentsivastase käitumise avastamise võimel ja taristu hankimises uuenduslike lähenemisviiside edendamisel. See nõuab vastastikuse tugevdava mõju saavutamiseks reforme mitmes valdkonnas. Esmajärjekorras tuleks luua ühikuhindade andmebaas. Lisaks tuleks lõpetada põhisummaga lepingute kasutamine, kooskõlastada kavandatavad taristuhanked kogu transpordisektoris ja sellest väljaspool ning süsteemselt tegeleda Rail Balticu projektist tulenevate riskidega. Keskpikas perspektiivis peaks üks põhieesmärk olema põhjaliku hankemenetluse juhendi koostamine, milles käsitletakse enamat kui ainult pakkujate valimise etappi. Suhtuda transpordiprojektide tarbeks avaliku ja erasektori partnerluste rakendamisse ettevaatlikult ja rakendada neid strateegiliselt Avaliku ja erasektori partnerlused võivad transporditaristu puhul olla tasuvamad vaid kindlatel juhtudel. See on tõenäoline ainult juhul, kui taristuettevõtja saab kasutajate nõudlust teenuse kvaliteedi kaudu tugevalt mõjutada (olukorras, kus kasutajad ei sõltu teenusest täielikult). See kehtib sageli lennujaamade ja meresadamate kohta; maantee- ja raudteetaristu puhul see üldiselt nii ei ole. See ilmneb ulatuslikest ITF-i uuringutest. Sellele vaatamata otsustatakse lepingumudeli valimisel tihti avaliku ja erasektori partnerluste kasuks – põhjustel, mis pole seotud tõhususega. Ühe soovimatu stiimuli selleks loob asjaolu, et mõned raamatupidamisstandardid ei nõua avaliku ja erasektori partnerluste raames võetud maksekohustuste kajastamist riigivõlana. Paremate taristuga seotud tulemuste saavutamiseks on riigihangete ja institutsioonide korralduse parandamine üldjuhul parem variant kui avaliku ja erasektori partnerlused. Kui avaliku ja erasektori partnerlusi soovitakse siiski kasutada, peaks see toimuma terviklikus parimate tavade raamistikus, mis sisaldab häid ja üksikasjalikke juhiseid avaliku ja erasektori partnerluste ettevalmistamiseks, hankimiseks ja haldamiseks. Laiendada transporditaristu kasutamise maksustamist ja luua samal ajal stiimuleid säästva liikuvuse ja tõhusa transpordisüsteemi tagamiseks Eestis rakendatakse kasutusmakse praegu suhteliselt vähe. Sõiduautodele ja väikeveokitele on maanteetaristu kasutamine tasuta. Raskeveokitele saab teemaksukleebise väga väikese tasu eest. Paljudes Eesti linnades kaotati hiljuti ühistransporditasud. Kasutajate valikute suunamine tõhusama ja jätkusuutlikuma transpordisüsteemi poole nõuab olulisi hinnareforme. Maanteekaubavedudele kehtivat maksusüsteemi tuleks muuta ning erasõidukite maksustamise viis tuleks samuti ümber kujundada, ajendamaks liiklejaid kasutama tõhusamaid, vähem saastavaid sõidukeid ja autokasutajaid vahetama auto mõne säästlikuma transpordiliigi vastu. Ühistransport tuleks uuesti tasuliseks muuta, et tagada rahastamise stabiilsus ja võimaldada teha investeeringuid teenuse kvaliteedi parandamisse, mis on kasutajate arvu suurendamiseks hädavajalik. Samuti on hädavajalik toetada jalakäijatele ja jalgratturitele rohkema liikumisruumi andmist. Ainult tugevate hinnasignaalide ning avaliku ruumi mootorsõidukitelt 17 aktiivsetele transpordiliikidele ümberjaotamise kaudu on võimalik saavutada arvestatav üleminek eraautode kasutamiselt ühistranspordiga, jalgrattaga ja jalgsi liiklemisele. Uuringu raames saadud mudeldamistulemuste järgi on seeläbi võimalik vähendada reisijate maanteeveol tekkivat CO2 heitkogust kuni 50% võrra. Auto- ja bussiparkide uuendamisega saaks seda veel 30% võrra vähendada. Laiem kasutusmaksude rakendamine ühes asutuste reformimisega aitaks tagada hoolduse ja hangete tõhususe ning avaks uusi võimalusi taristu rahastamiseks Põhiliselt kasutusmaksudest rahastatav riigi omandisse kuuluv maanteetaristu haldamise ettevõte saaks rahastada maanteetaristu parendusi, ilma et ettevõtte maksekohustused suurendaksid Eesti riigivõlga. Riigieelarvest sõltumatu prognoositav rahastamisvoog aitaks üldjuhul tagada tõhusa hoolduse ja hangete kavandamise. Arendada põhja- ja lõunasuunalist raudteekaubavedu, pöörates erilist tähelepanu konteiner-ühendvedudele Suurte nõudluse muutuste tulemusena on Eesti raudteekaubaveos fookus nihkumas ida-läänesuunaliselt mahtkaubaveolt kaupade transpordile mööda põhja-lõunakoridori. Eeldatakse, et Rail Baltic hakkab selles strateegias võtmerolli mängima. Selle nihke lõpuleviimiseks aga on veel palju tööd teha, sealhulgas tuleks Rail Balticu jaoks kasutusele võtta ühine juhtimismudel, et tagada selle tõhus toimimine. Samuti on hädatarvilik kohandada Eesti raudteekaubaveosüsteemi selliselt, et see oleks võimeline pakkuma tõhusaid ühendveoteenuseid ning suudaks selle toel hõivata osa rahvusvahelisest konteinerveoturust. Eesti ei peaks püüdlema piirkondlikuks transpordikeskuseks saamise poole Eesti ei tohiks investeerida transporditaristusse ainult täiendava transiitliikluse ligimeelitamiseks. Üksnes transiitliiklust toetavaid taristuinvesteeringuid on majanduslikult raske õigustada. Selleks peaks transiitliiklus hüvitama kogu investeeringu maksumuse ja katma olulise osa enda tekitatud välismõjudega seotud kuludest. Kui neid tingimusi ei täideta, toimuks tegelikult transiitliikluse subsideerimine Eesti maksumaksja kulul. Lisaks on transiitliiklus olemuselt muutlik ning on seega pikaajaliste taristuinvesteeringute jaoks ebastabiilne pinnas. Rail Baltic on siinkohal erand, sest seda kaasrahastab tõenäoliselt enam kui 80% ulatuses Euroopa Liit. Sotsiaalne tasuvus peaks alati jääma üheks peamiseks kaalutluseks – ka siis, kui kulude katmise nõudeid otsustatakse leevendada, näiteks piirkondliku poliitilise ühtekuuluvuse eesmärkide saavutamiseks. 18  1. peatükk. Aruande ülevaade ja peamised leiud Eesti majandus on pärast riigi 1991. aastal taasiseseisvumist märkimisväärselt arenenud, kusjuures viimastel aastatel on kasv harilikult olnud üle 3% aastas. On aga võimalik, et Eesti sisetranspordisüsteemi praegune olek ja Eesti vähene rahvusvaheline ühendatus võivad hakata pidurdama riigi majanduse edasist arengut (OECD, 2019). Eesti transpordisüsteemis leiduva arenemisruumi paremaks mõistmiseks alustas Majandus- ja Kommunikatsiooniministeerium (MKM) koostööd Rahvusvahelise Transpordifoorumiga (International Transport Forum – ITF), eesmärgiga koostada seni kõige põhjalikum uuring Eesti transpordipoliitikast. Uuringu koostamist rahastati Euroopa Liidu struktuurireformi tugiprogrammist Euroopa Komisjoni toel. Uuring koosnes kolmest osast. Esimene osa seisnes transpordipoliitika kümne valitud tahu kõrgetasemelises hindamises. Hinnatavate tahkude valik langetati koostöös Eesti riigiga. Seejärel tehti kindlaks iga tahu puhul esinevad probleemid ja koostati soovitused reformide elluviimiseks. Uuringu teise osa raames töötati välja kvantitatiivsete näitajate kogum, mida on võimalik kasutada transpordipoliitika põhieesmärkide suunas liikumisel saavutatud edu mõõtmiseks. Uuringu kolmas osa hõlmas inimeste ja kaupade Eesti-sisese liikumise kvantitatiivse analüüsi koostamist ühes mudeldatavate reformiettepanekutega ning mõõtmist, kuidas nende elluviimine mõjutaks peamiste poliitikaeesmärkide saavutamist eri stsenaariumide korral. Kuna Eestis ei ole loodud veel riiklikku transpordimudelit, töötati riigi jaoks välja spetsiaalne kõrgetasemeline maantee-, raudtee- ja meretransporti hõlmav mudel. Õhutransport jäeti mudelist välja sellekohaste andmete nappuse tõttu. Käesoleva aruande 2.–4. peatükis esitatud materjal sisaldas toetavat analüüsi, mis esitati Eesti riigile eraldiseisvates aruannetes. Samuti esitati Eestile riigi jaoks välja töötatud mudel, võimaldamaks langetada põhjendatud otsuseid, kuni töötatakse välja täielik riiklik transpordimudel. Selles peatükis võetakse kokku aruande peamised leiud. Esmalt tutvustatakse kümnes uuritud poliitikavaldkonnas tuvastatud suurimaid vajadusi reformide elluviimiseks, seejärel tuuakse välja valitud näitajad ja selgitatakse nende asjakohasust ning viimasena esitatakse stsenaariumide analüüs. Soovitatud reformid on oma olemuselt valdavalt süsteemsed, st neis ei keskenduta niivõrd investeerimisprioriteetidele üksikprojektide tasandil. Selles kajastub tõik, et projektide valik peab põhinema tugevatel planeerimisprotsessidel, mille raames tuvastatakse prioriteetsed vajadused, ning põhjalikul tasuvusanalüüsil, mille abil määratakse kindlaks, millised projektid suudavad need vajadused kõige mõjusamalt ja tõhusamalt täita. 1.1. Milliseid poliitikareforme tuleks prioriseerida? Tuvastasime kõigis kümnes analüüsitud poliitikavaldkonnas kõigepealt põhiprobleemid ja seejärel nende lahendamiseks vajalikud reformid. Järgnevalt kirjeldame vajalikemaid reforme igas poliitikavaldkonnas. Tuvastatud probleemide ja soovitatavate reformide täielik ülevaade on esitatud 2. peatükis. Riigi institutsiooniline struktuur peaks tagama strateegiliste otsuste tegemise suurema konsolideerituse ja sõltumatuse ning pakkuma stiimuleid tõhususe suurendamiseks Selle uuringu alguses oli Eesti juba alustanud oma transpordisektori korralduse reformimist. Nimetatud reformide puhul järgitakse üldjoontes Skandinaavia mudelit, kus enamikku transpordisektori rolle täidab 19 üks konkreetne riigiasutus. Eesti puhul pidi selleks saama uus Liikuvusamet. ITF koostas ettepaneku kavandatud reformide oluliseks muutmiseks. Meie laiapõhjaline ettepanek on võetud kokku joonisel Joonis 1 (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Institutsiooniline struktuur“). Koostasime järgmised kuus peamist soovitust.  Strateegilise planeerimise funktsiooni tuleks koondada. Strateegilise planeerimise funktsioon on praegu hajutatud mitme organisatsiooni vahel. Selle koondamiseks oleks hea luua Majandus- ja Kommunikatsiooniministeeriumi (MKM) alla uus strateegilise poliitika osakond. Uue osakonna ülesandeks tuleks teha metoodikaalaste standardite kehtestamine projektide hindamiseks Tehniliste Vahendite Keskuse (TVK – vt altpoolt) kaudu ning taristuhaldusasutustelt saadud projektiettepanekute ja hinnangute kvaliteedi tagamine. Lisaks peaks osakond vastutama ministritele projektide valiku asjus nõu andmise eest.  Strateegilisse planeerimisse panustavatele ja taristuhangetega tegelevatele asutustele tuleks pakkuda tehnilist tuge. Asutusesisene nõustaja strateegilise poliitika osakonnas – Tehniliste Vahendite Keskus (TVK) – oleks neile asutustele suureks abiks. TVK peaks olulistes valdkondades suurendama tehnilist võimekust, toetades seega MKM-i võimet tegevusi kvaliteetselt strateegiliselt kavandada ning koostada kvaliteetseid hankestrateegiaid. Lisaks tuleks selle reformi ühe osana parandada strateegilise poliitika osakonnas töötavate analüütikute/nõustajate staatust, et võimaldada nendel võtmetähtsatel üksustel värvata ja hoida enda juures andekaimaid inimesi. Selle raames tuleks muu hulgas luua transpordi peaökonomisti ja hangete peadirektori ametikohad.  Metoodikad ja taristualased prioriteedid tuleks eri sektorite vahel kooskõlastada. Eeltoodud reformid hõlmavad üksnes transpordisektorit. Luua tuleks uus asutus – Taristu Arendamise Sihtasutus –, mille eesmärk oleks parandada taristualaste investeeringute strateegilist jaotamist ja kooskõlastamist kõigi sektorite peamiste taristuvajaduste tuvastamise ja prioriteetide kohta soovituste andmise kaudu. Selle abiga oleks võimalik teha kindlaks taristualaste investeeringute tarvis aja jooksul eraldamist vajav summa, jaotada see sobival viisil transpordi- ja muude sektorite vahel ning tuvastada sünergiaid ja omavahelisi sõltuvusi. Selle OECD riikides üha tavalisemaks muutuva sõltumatu taristualase nõustamise mudeli eelised tulenevad selle sektoriteülesusest ja potentsiaalist saavutada erakondadeülene toetus ning pikaajaliste kavade jaoks vajalik järjepidevus tänu suurele valitsusest sõltumatuse määrale.  Transpordisektorit tuleks tõhustada stiimulipõhise reguleerimise kaudu, täpsemalt rakendades reguleeritavate varade väärtuse (Regulatory Asset Base – RAB) mudelit. Selle asemel, et luua Rootsi Trafikverketiga sarnane kõikehõlmav transpordiamet, võiks Eesti hoida taristuhaldusfunktsiooni lahus, luues eraldi reguleerimise ja järelevalvega tegeleva asutuse. Kogu tähtsamat transporditaristut (sealhulgas maanteid) peaksid haldama riigiettevõtted. Sellele reguleerimise ja järelevalvega tegelevale asutusele tuleks anda stiimulipõhise reguleerimise funktsioon, mida tuleks rakendada eelnimetatud ettevõtetele. Enamik neist oleksid olemuselt monopoolsed, mistõttu tuleks nende suhtes kohaldada sarnaseid stimuleerimisraamistike nagu kommunaalteenuste (nt elektriedastuse) puhul.  Tuleks otsida viise taristu haldamisega tegelevate riigiettevõtete kasutajatepoolseks rahastamiseks, säilitamaks tõhusust ja avamaks uusi taristu rahastamise võimalusi. Kui maanteetaristut haldaks riigiettevõte ja seda rahastataks suuresti kasutajatasude kaudu, saaks vastav maantee-ettevõte rahastada uut maanteetaristut oma bilansi arvelt, kusjuures ettevõtte võlga ei arvestataks Eesti riigivõla hulka. See oleks parem viis taristuinvesteeringute suurendamiseks kui Maastrichti riigivõla ülempiiri kriteeriumist kõrvalehiilimine avaliku ja 20  erasektori partnerluste kaudu. Lisaks aitaks üldeelarvest sõltumatu prognoositav rahastamisvoog üldjuhul tagada tõhusa hoolduse ja hangete kavandamise. Transpordi maksustamist käsitlevates jaotistes (2.5 ja 2.7 reisija- ja maanteevedude teemal) arutatakse elektrooniliste vahemaapõhiste kasutustasude kehtestamise eeliseid. Raudteetaristuettevõtet juba rahastatakse taristu kasutamise tasude kaudu. Kulude katmise tase on langenud ja on praegu umbes 70%. Kaubavedude maanteelt raudteele ümbersuunamise püüdlustes oleksid raudteeveoettevõtjatele makstavad toetused eelistatavad taristukasutustasudest saadavatele kahanevatele tuludele. See säilitaks rahastamise sõltumatuse üldeelarvest ja bilansi stabiilsuse ning minimeeriks võlgade kuhjumise riski.  Liikuvusamet peaks keskenduma ühistransporditeenuste pakkujate tegevuse kooskõlastamisele. Kavandatava Liikuvusameti roll võiks olla algselt pakutust piiratum, hõlmates eelkõige ühistranspordiga seotud funktsioone, sealhulgas eri ühistransporditeenuste kooskõlastatuse tagamine, hinna- ja piletisüsteemide ühitamine ning avaliku teenusena osutatavate ja hüvitatavate teenuste hankimine. Taristu kavandamisel peab otsuste tegemisele eelnema analüüs ning transpordi strateegilise mudeldamise võimekust tuleks parandada Projektide hindamise eesmärk peaks olema õigete investeerimisotsuste langetamise võimaldamiseks teabe pakkumine, mitte juba tehtud otsuste õigsuse kinnitamine. Selle saavutamine nõuab praeguse kultuuri muutmist. Analüüs ei saa asendada poliitilisi otsuseid (nt piirkonnas A taristu parendamise tähtsustamine kõrgemalt kui piirkonnas B). Selle eesmärgiks on pigem tagada, et neid otsuseid tehakse parimate võimalike teadmiste alusel, aidates tuvastada iga otsusega kaasnevad kulud ja ohverdused (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Taristu kavandamine ja projektide valimine“). Selleks, et analüüsile oleks võimalik anda otsustusprotsessi toetamises vajalik roll, on tarvis ellu viia kaks peamist muudatust. Esiteks tuleb parandada transpordianalüütikute – Tehniliste Vahendite Keskuses transpordi mudeldamises ja projektide hindamises osalevate ekspertide – rolli ja staatust. Nende juhi, transpordi peaökonomisti peaks ametisse määrama minister, kellele esimene peaks ka otse alluma. Lisaks peaksid palgad ja hüvitised olema piisavad, et võimaldada Tehniliste Vahendite Keskusel värvata andekaimaid inimesi. Teiseks on hädavajalik arendada oluliselt taristu kavandamise ja investeeringute hindamise võimekust. Nende valdkondade edendamiseks said Eesti ametiasutused konkreetseid soovitusi sellistel teemadel nagu strateegilise mudeldamise tööriistad, prioriteetide seadmine ja projektide valimine, hindamisprotsessid ja metoodikad, linnadevaheliste liikumiste mudeldamine ja hindamine, linnatransport, auditeerimine ja järelhindamine. Võtta riskianalüüside tulemusi arvesse projektide väljatöötamise käigus otsuste tegemisel Pidev riskianalüüs ja riskijuhtimine on eriti suurprojektide puhul hädavajalikud. Nende tulemusi ei tohiks aga vaadelda projektide kavandamisdokumentatsiooni alusel prognoositud baaskuludest eraldi. Riskianalüüsi tuleks kasutada riskide põhjal korrigeeritud hinnangute koostamiseks nii projekti kulude kui ka kasude kohta, ning otsuste tegemisel ja vajaduse korral üldsusega uue teabe jagamisel tuleks kasutada just riskide põhjal korrigeeritud hinnanguid (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Taristuhanked“). 21 Vastasel juhul soodustatakse sellise kultuuri tekkimist, kus tõenäolisimate arvude ja mõjude asemel kaldutakse esitama pigem niisuguseid, millega jäädakse nõusse vähima vastupanuga. Selle tulemusena jääks otsustajatele vähem võimalusi riskide ja probleemide väljaselgitamiseks enne, kui nendega pole enam võimalik tegeleda. Taristu hankimise viise, töötajate suutlikkust ja tugiasutusi tuleks põhjalikult täiendada ja arendada Taristu maksumuse vähendamiseks, konkurentsivastase tegevuse avastamise võimekuse parandamiseks ja taristu loomisel innovatsiooni edendamiseks on olemas märkimisväärseid võimalusi. Nende paranduste tarvis on vaja ellu viia mitmesuguseid üksteist toetavaid reforme (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Taristuhanked“). Esmajärjekorras tuleks teha järgmist.  Luua ühikuhindade andmebaas, alustades maanteesektorist ja hõlmates lõpuks kõik riigihanke korras tehtavad ehitustööd. Ühikuhindade süstemaatiline andmebaas (nt asfaldi, kruusa, betooni maksumus m3 kohta) on hädavajalik tulevaste kuluprognooside ja eelarvete teadlikumaks koostamiseks, põhjendamatult madala (või kõrge) maksumusega pakkumuste tuvastamiseks jms.  Loobuda põhisummaga lepingute ja nende eeskujul tuletatud lepingute üldisest kasutamisest. Maanteeamet rakendas seda tava pakkujate ja/või töövõtjatega vaenulike suhete vältimiseks. Kahjuks suurendavad sellised lepingud oluliselt taristu maksumust, mistõttu tuleks neid kasutada vaid kõige lihtsamate tööde jaoks. Lisaks peaks Rahandusministeerium tellima taristuhankelepingute täitmise ja lepingute sõlmimise kultuuri süvaanalüüsi, et teha täpsemalt kindlaks, milliste muude hankeliikide puhul on lepinguvormide puudulik rakendamine probleemiks.  Analüüsida ehitusturgu ja kooskõlastada taristuhangete kavandamist kogu transpordisektoris ja sellest väljaspool. Ehitusturu analüüs aitaks teha kindlaks, kuidas avaliku sektori nõudlus mõjutab Eesti ehitussektorit ja selle segmente. Üksused, kelle nõudlus mõjutab samu segmente transpordisektoris ja sellest väljaspool, peaksid nõudlusest tingitud hinnatõusu vältimiseks oma kulutusi kooskõlastama.  Pöörata Rail Balticu riskianalüüsi alusel koostatud riskimaandamiskavade rakendamisele suuremat tähelepanu. Rail Balticu projekti Eesti osa riskianalüüsi käigus tuvastati hulk projektiga seotud riske ja pakuti välja vastavad riskimaandamismeetmed. Sellega seoses on edusamme küll tehtud, kuid paljusid meetmeid pole endiselt tarvitusele võetud. Muud reformid, mis nõuavad rohkem aega, hõlmavad hankestrateegia suuniste väljatöötamist, mis käsitleksid enamat kui ainult pakkujate valimist ja hankekorraldajate pädevuse parandamist. Samal ajal tuleks institutsionaalse reformina välja pakutud Tehniliste Vahendite Keskusele anda hangete, samuti kavandamise ja investeeringute hindamise alase teadmuskeskuse roll. Enne avaliku ja erasektori partnerluste piiratud ja eesmärgikindla kasutamise kaalumist tuleks transpordisektorit põhjalikult reformida Eesti riik on kaalunud teetaristuprojektides avaliku ja erasektori partnerluste kasutamist. See näib põhiliselt olevat motiveeritud asjaolust, et Euroopa Liit ei loe avaliku ja erasektori partnerluste kaudu tekkinud võlga Eesti riigivõla osaks. See tuleneb Euroopa arvepidamissüsteemist ning seda peetakse valdavalt vääraks stiimuliks, sest on halb põhjus avaliku ja erasektori partnerluste rakendamiseks. Avaliku ja erasektori 22 partnerlusi tuleks kasutada siis, kui nende abil on võimalik saavutada parem hinna ja kvaliteedi suhe, võrreldes muude hanke liikidega või avaliku sektori organisatsioonidega. Paljude taristuprojektide puhul pole selge, kas avaliku ja erasektori partnerlusega on võimalik saavutada parem hinna ja kvaliteedi suhe. ITF viis äsja lõpule rahvusvahelise uurimisprojekti taristualaste erainvesteeringute, sealhulgas avaliku ja erasektori partnerlused, ning hangete kohta laiemalt (ITF, 2018). Selles leiti, et avaliku ja erasektori partnerlused suudavad paremat hinna ja kvaliteedi suhet pakkuda vaid suuresti sisetekkelise nõudluse tingimustes. Need tingimused esinevad sageli lennujaamade ja meresadamate puhul. Nende tingimuste puudumisel aga, näiteks maantee- ja raudteetaristu puhul, ei ole avaliku ja erasektori partnerluste kasutamine soovitatav. Selle asemel soovitame Eestil alustada transpordisektori institutsionaalset reformimist ja võtta järk-järgult kasutusele vahemaapõhised kasutustasud. Need reformid võimaldaksid Eestil rahastada uusi teedesse tehtavaid investeeringuid bilansivälistelt, ilma et oleks vaja kasutada avaliku ja erasektori partnerlusi. Paljudes Euroopa riikides on samade funktsioonidega maanteekorporatsioonid juba olemas (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Taristu rahastamine ja erainvesteeringute roll“). Kui Eesti kavatseb siiski avaliku ja erasektori partnerlusi rakendada, tuleks sealjuures kasutada kõikehõlmavat avaliku ja erasektori partnerluste parimate tavade poliitikaraamistikku, mis sisaldab tõhusaid ja üksikasjalikke suuniseid. Selleks oleks vaja lisada hiljuti avaldatud riiklikkesse suunistesse avaliku ja erasektori partnerluste kohta mitme täiendava teguri käsitlused. Muu hulgas tuleks neis põhjalikult käsitleda, mida erainvesteeringute abil taristu alal on ja ei ole võimalik saavutada, tarnijatega seotud riskide vähendamist, projekti elluviimise järgset lepingute haldamist ning lepingutingimuste uuesti läbirääkimist. Praegust transpordi maksustamise korda tuleks reformida, et luua sobivad stiimulid tõhusa taristu pakkumise toetamiseks Eestis rakendatakse taristukasutustasusid praegu väga vähe, välja arvatud raudteesektoris. Reisijateveosõidukitele on maanteede kasutamine tasuta, hiljuti kaotati paljude reisijate jaoks ühistranspordi kasutamise tasud ning raskete kaubaveokite eest nõutavad teekasutustasud on niivõrd madalad, et on praktiliselt kõigest sümboolsed. See on toonud kaasa olulised negatiivsed tagajärjed. Eesti autode süsiniku eriheide on Euroopa Liidus kõige suurem ja energiatõhusus kõige väiksem. Tasuta ühistranspordi kasutuselevõtt ei aidanud vähendada Eesti elanikkonna seas esinevat ebavõrdsust ega vähendada autosõltuvust ning viib lõppkokkuvõttes ühistransporditeenuse kvaliteedi langemiseni, mis muudab selle transpordiliigi veelgi vähem atraktiivseks (üksikasjaliku analüüsi leiate 2. peatükist maantee- ja raudteekaubavedu ning kasutajate käitumise juhtimist ja ühistranspordipoliitikat käsitlevatest jaotistest). Eesti vajab nii kauba- kui ka reisijateveo ning maantee- ja raudteetranspordi maksustamise ja kasutustasude rakendamise korra reformimist. Üldine eesmärk peaks olema saavutada maksustamise ja kasutajatasude kaudu stabiilne ja tõhus taristukulude katmise tase. Kasutustasud peaksid valdavalt põhinema lühiajalistel piirkuludel, kusjuures juurdehindlust tuleks rakendada maksevalmiduse põhjal püsikulude katteks. Maksustamis- ja tasusüsteem peaksid sisaldama stiimuleid heitkoguste vähendamiseks, diferentseerides tasusid vastavalt sõiduki heiteomadustele. Kütuseaktsiisist saadav tulu kahaneb aja jooksul, kuna autod muutuvad kütusesäästlikumaks ja elektrisõidukite osakaal kasvab. Selle korvamiseks tuleb kehtestada sõidukilomeetritasu. Vahepeal mängib kütuseaktsiis aga samuti olulist rolli valikute suunamisel väiksemate CO21ja muude kahjulike heitgaaside heitkoguste poole. Ajutiste Covid-19 kriisi meetmetega tekitatud suur erinevus bensiini ja diislikütuse aktsiisi määra vahel tuleb kõrvaldada. Maanteede puhul tuleks eesmärgiks võtta ka loodava maantee-ettevõtte rahastamise sõltumatuse 23 saavutamine vahemaapõhiste kasutustasude kehtestamise kaudu. See võimaldaks katta kulusid vastaval määral ka välismaal registreeritud teedevõrgukasutajate kaudu. Automaksud: tuleks luua stiimul vähemsaastavate uute ja kasutatud autode ostmiseks ning lisada see automaksudesse. Kõige parem viis seda teha oleks kehtestada imporditud kasutatud sõiduautode esmaregistreerimiseks heitgaasiklassi alammäära ning uute sõidukite ostmisele heitgaasiklassi põhjal diferentseeritud maksu. See kombinatsioon on eelistatav diferentseeritud iga-aastasele liiklusmaksule regressiivse mõju minimeerimiseks. Ühistransporditasud: kaotatud ühistransporditasud tuleks uuesti kasutusele võtta. Kogetu põhjal on näha, et tasuta ühistranspordi kasutuselevõtt Eestis ei suurendanud ühistranspordi kasutajate arvu ega vähendanud teedel liiklust. Aruande järgmistes jaotistes esitatud mudeldamistulemused näitavad, et kasutustasude taaskehtestamine ei avaldaks samuti kasutajate arvule negatiivset mõju. Ühistranspordi uuesti tasuliseks muutmine parandaks ühistranspordi rahastamise stabiilsust ja võimaldaks teha suuremaid investeeringuid teenuse kvaliteedi parandamiseks, mis on ühistranspordi kasutamise määra säilitamiseks ja suurendamiseks hädavajalik. Elektrooniliste vahemaapõhiste tasude rakendamine sõiduautodele: sõidukite kütusesäästlikumaks muutumisel ja fossiilkütuseid kasutavate autode asendumisel elektriautodega saab ühel hetkel vajalikuks kehtestada sõiduautode kasutamisele elektroonilised vahemaapõhised tasud (edaspidi: EVP-tasud), korvamaks kütuseaktsiisist saadavate tulude vähenemist. Teistes riikides tehtud simulatsioonid näitavad, et tehnoloogia arengu tulemusena võivad kütuseaktsiisist saadavad tulud väheneda 2050. aastaks enam kui 50% võrra. Eestis põhjustab negatiivne rahvastiku juurdekasv tõenäoliselt veelgi suurema suhtelise tulude vähenemise. See muudab EVP-tasude kehtestamise vältimatuks. Tasude määra saaks aja jooksul järk-järgult tõsta, et suurendada nende poliitilist vastuvõetavust, kuid EVP-tasude lahenduse kavandamisega ja selle käitussüsteemi hankega tuleks alustada kohe. Tasusüsteemiga seotud võrdsusküsimused oleks võimalik lahendada sihtotstarbeliste toetuste ja/või süsteemisisese ristsubsideerimise kaudu. Lisaks saaks EVP-tasude süsteemi kasutada liiklusummikute vähendamiseks, kui see peaks tulevikus oluliseks probleemiks muutuma, rakendades asukoha ja kellaaja alusel erinevaid tasumäärasid. Elektrooniliste vahemaapõhiste tasude rakendamine veokitele: maanteekaubaveos EVP-tasude võimalikult kiiresti kehtestamiseks on mitu põhjust. Praegu Eesti teedevõrgus rakendatavad ajapõhised teekasutustasud on väiksed ja neid piiravad EL-i direktiivid. Seega on nende panus taristukulude katmisse ja väliskulude arvessevõtmisse minimaalne. Lisaks on nii oma- kui ka välismaistel transpordiettevõtjatel võimalik vältida Eesti suhteliselt kõrgeid kütuseaktsiisi määrasid, ostes kütust naaberriikidest odavama hinnaga, mida tehes ei panusta nad õiglaselt Eesti teedevõrgule põhjustatud kulude katmisesse. Eestis tuleks kehtestada kohe EVP-tasud ja suunata sellest saadud tulud otse loodavale maantee-ettevõttele, aitamaks tagada viimase rahastamise sõltumatuse. Kasutustasude määra seadmine sellisele tasemele, mis võimaldaks katta vähemalt poole teedega seotud kuludest, annaks maantee-ettevõttele vabaduse ise laenu võtta, mis hõlbustaks oluliselt uue taristu rajamise ja teede uuendamise rahastamist. Kui sellise reformi poliitiline vastuvõetavus nõuab kasutustasuga tekitatavate kulude korvamist mujal, saaks seda teha veoettevõtjatele osaliselt vähendatud kütuseaktsiisimäära kohaldamise teel – seelaadne süsteem on juba mõnedes EL-i liikmesriikides kasutusel. Kui maanteekaubavedudele rakendatavatest EVP-tasudest saadav tulu pole maantee-ettevõtte sõltumatu rahastamise tagamiseks piisav, tuleks kiirendada nende tasude laiendamist sõiduautodele. Kütuseaktsiisid: 2020. aasta mais langetas Eesti COVID-19 kriisile reageerides diislikütuse aktsiisi ajutiselt, kaheks aastaks 25% võrra. Sellest ajakavast tuleks kinni pidada ja diislikütuse aktsiis tuleks meetme kehtivuse lõppedes viia tagasi bensiiniaktsiisiga samale tasemele. See on vajalik, et kaotada rahaline stiimul 24 diislikütuse kasutamiseks – millega kaasnevad oluliselt suuremad kulud –, mis on loodud bensiinile kohaldatavast madalama maksumäära kaudu, ja taastada varasem olukord. Raudteetaristu kasutustasud: raudteetaristu kasutustasudest kaetakse ligikaudu 70% süsteemiga seotud aastastest kuludest ning kaubaveost saadavad tulud katsid veel hiljuti 100% kuludest. Süsteemi mõned osad vajavad elektrifitseerimist, kuid üldjoontes ületab rahastus vajadust ning olulisi hooldamis- ega uuendamispuudujääke praeguse seisuga pole. Seda lahutatust üldeelarvelise rahastamisega seotud lühiajalistest riskidest ja finantstasakaalu tuleks säilitada. Kaubavedude maanteelt raudteele ümbersuunamise ja reisijate raudteeveo suurendamise poliitika võib nõuda raudteeveoettevõtjatele toetuste maksmist. See on nende teenuste toetamisel eelistatav taristukasutustasude vähendamisele. Taristuettevõtjale väiksemate tasude hüvitamine aastaste eelarveliste arvelduste teel võib seada ohtu taristu rahastamise prognoositavuse. Samal ajal on soovitatav tasud perioodiliselt üle vaadata, et tagada juurdehindluste vastavus hinnaelastsustele ning juurdepääsu ja abiteenuste tingimuste mittediskrimineerivus. Linnatranspordialased konkreetsed kaalutlused: Eesti peaks välja töötama tervikliku ja ühitatud poliitikameetmete komplekti, et muuta kasutajate käitumist, kui soovitakse suurendada ühistranspordi ja aktiivsete transpordiliikide kasutamist. See hõlmab nii ühiskondlikult soovimatute valikute tõrjumist kui ka teiste, eelistatavate valikute toetamist. Need meetmed peaksid hõlmama rohkemate ja paremate teenuste pakkumist ning teenusepakkumiste paremat kooskõlastamist, suurendamaks teenuste mugavust ja väärtust ning parandamaks üldist kasutajakogemust. Tähtsamate sammude hulgas tuleks ühistransport uuesti tasuliseks muuta ning saadavaid tulusid kasutada selleks, et suunata rohkem ressursse teenuse kvaliteedi parandamisse. Samuti tuleks luua kõiki ühistranspordiliike hõlmav ühtne tariifisüsteem ja parandada piirkondadevahelist kooskõlastamist. Avaliku teenuse osutamise kohustused ja kontsessioonilepingud peaksid sisaldama ka rohkem stiimuleid, näiteks teenuse kvaliteediga seotud makseid. Jalgrattaga ja jalgsi liiklejatele tuleks pühendada rohkem teepinda. Viimasena tuleb meeles pidada, et linna ühistranspordipoliitika on kõige tulemuslikum siis, kui see on lõimitud maakasutuse planeerimisega. See tähendab, et planeerimisreeglid peaksid soodustama arengut piirkondades, kus ühistransport toimib kõige paremini, ja kajastama suurema tihedusega linnade juurdepääsetavuse eeliste mõistmist ning arendustasusid tuleks kasutada transpordiga seotud taristu parendamise toetamiseks. Suurendada tuleks põhja- ja lõunasuunalist piiriülest koostööd raudteekaubaveo arendamiseks kogu selles EL-i transpordikoridori osas Eesti kaubaraudteed on varasemalt olnud tugevalt orienteeritud endistele Nõukogude Liidu turgudele ja tegutsenud osa ajast tulundusliku eraettevõttena. Sellesuunaline liiklus on muutunud ettearvamatuks ja kahanenud. Viimastel aastatel on kasv tulnud sadamate kaudu sisestest konteinervedudest, peamiselt põhja ja lõuna suunas. Rail Balticu projekt eeldatavasti laiendab voogusid selles koridoris, kusjuures majanduslikult peaks hakkama suurt rolli mängima kaupade vedu Soome ja Soomest. Selle teostumiseks on aga vaja veel palju ära teha (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Raudteekaubavedu ja - taristu“. Rail Balticu (RB) liini ehitamine on kõigest selle ettevõtmise algus ja selle potentsiaali ärakasutamiseks on vaja ellu viia arvukalt tegevusi. Edukaks toimimiseks peaks Eesti püüdma võtta kõigi kolme Balti riigi vahel vastu ühise juhtimismudeli RB taristu haldamiseks. See aitaks muuta rongiliikluse tsentraliseeritud liiklus- ja operatsioonijuhtimise kaudu sujuvaks ning liini klientidele juurdepääsetavamaks ja atraktiivsemaks, tagada parema taristu hoolduse ja vältida liiasusi. Operatsioonide vallas tuleks jõupingutusi tulevaste strateegiliste partnerluste loomiseks alustada kohe. Poola ja Soome tuleks RB kasutuselevõtu ja operatsioonide kavandamisse tihedalt kaasata. Piiriülest koostööd ja raudtee kaubaveoühendusi tuleks 25 asuda kavandama aegsasti enne RB projekti lõpuleviimist. Sellised algatused nagu olemasolev Leedut Eestiga ühendav Merevaigurongi teenus edendavad taristuettevõtjate, veoettevõtjate ja muude osaliste vahelist koostööd, soosides ühiste eeskirjade väljatöötamist ja kitsaskohtade tuvastamist. RB peamine funktsioon on rahvusvaheliste ühenduste pakkumine. RB loodi eesmärgiga vältida asustuskeskusi ja parandada rahvusvahelist ühenduvust. See peaks nõnda ka jääma. Piirkondlikku ühenduvust on tõhusam parandada olemasoleva asustuskeskusi läbiva võrgu ajakohastamise teel. Rahvusvahelist suunitlust ei tohiks ohverdada piirkondlike vajaduste nimel. Raudteekaubaveo tulevik ja selle panus süsinikuneutraalse majanduse loomisse sõltuvad üha enam selle võimest kohaneda ja võtta üle osa konteinerveoturust. Eesti peab edendama ühendvedude toimimist ning kuivsadamate ja ühendveoterminalide arendamist. Olemasoleva taristu ajakohastamine on oluline üleriigilise ja piirkondliku ühenduvuse parandamiseks. Eesti ei peaks püüdlema piirkondlikuks transpordikeskuseks saamise poole Kuigi kasutustasudest kaetakse Eestis suhteliselt suur osa otsestest raudteetaristukuludest (umbes 70%), on puudujääk endiselt 30% ja välismõjude tõttu tekkinud kulusid ei kaeta. Maanteekaubaveo puhul kaetakse taristukulud täielikult ja kütuseaktsiiside kaudu loodud stiimulid CO2 heitkoguste piiramiseks on tugevamad kui enamikus EL-i riikides. Välismõjud aga on siiski olulised. Kaupade maanteetransiitvedude suurendamine suurendaks vajadust maanteetaristu laiendamise või ummikumaksude kehtestamise järele, mis tooks Eestile kaasa sotsiaalseid kulusid. Samuti, kui transiitliiklus suureneks raudteevõrgus, subsideeriks seda transiitliiklust tegelikult Eesti maksumaksja. Rail Baltic on erand, kuna seda kaasrahastab (prognooside kohaselt) 81% ulatuses Euroopa Liit. Seda arvesse võttes ei peaks Eesti pürgima eesmärgi poole meelitada riiki rohkem transiitliiklust. Sotsiaalne tasuvus peaks jääma üheks peamiseks kaalutluseks ka siis, kui kulude katmise nõudeid leevendatakse, näiteks piirkondliku poliitilise ühtekuuluvuse eesmärkide saavutamise huvides. Projektide hindamisel, olgu tegemist siis riigisisese või rahvusvahelise projektiga, tuleks seda jätkuvalt silmas pidada. Sadamapoliitikas tuleks keskenduda merendusettevõtete klastrite arendamisele ja parvlaevateenuste osutamise lepingud peaksid võimaldama hallata nõudlust hinnakujunduse kaudu Eesti sadamad töötavad hästi, kuid on kümmekond aastat tagasi toimunud Venemaa-suunalise transiitliikluse järsu languse tõttu endiselt alakasutatud. Rail Balticu käivitamiseni, mis on praegu suurim ettevõtmine täiendavate kaubavoogude ligimeelitamiseks, on jäänud veel mitu aastat. Tulevaste taristuinvesteeringute tegemisel tasub silmas pidada saadud õppetundi, et transiidivood on muutlikud, mis võib kergesti viia suurte investeeringute luhtumiseni. Selle probleemi lahendamiseks on Eestis vähe võimalusi. Ehkki sadamates võib esineda võimalusi lisaväärtust loovate tegevuste ettevõtmiseks, ei anna need tõenäoliselt olulist majanduslikku kasu (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Merenduspoliitika“). Praegune riigiabipakett 200 laeva meelitamiseks Eesti lipu alla ei ole tõenäoliselt tõhus ja see tuleks uuesti läbi vaadata. Selle asemel tuleks välja töötada merendusklastrite strateegia, mis oleks suunatud uuenduslikele merendustegevustele, milles Eestil võiks olla võimalik saavutada suhtelisi eeliseid. Reisijateveo valdkonnas tuleks parvlaevateenuste pakkumised ümber kujundada selliselt, et soodustada kvaliteetse teenuse pakkumist ja varade tõhusat kasutamist. Sealhulgas tuleks kasutusele võtta dünaamiline hinnasüsteem, vähendamaks tipptundidel parvlaevaliikluses tekkivaid ummikuid ning 26 tööpäevadel ja väljaspool kõrghooaega teenuse alakasutust. Samuti tuleks uurida võimalusi avaliku teenuse osutamise lepingutesse seadmete ja varade hooldamise stiimulite loomiseks. Lennutranspordipoliitikas tuleks keskenduda otsuste tegemise toetamiseks rohkemate andmete kogumisele ja Tallinna lennujaamas tuleks luua tõhususstiimuleid Lennundussektoris rakendatava transpordipoliitika hindamist ja kvantitatiivset mudeldamist takistas asjakohaste andmete nappus. Sellest tingituna on raske hinnata oluliste sündmuste ja projektide mõju, näiteks Rail Balticu mõju Tallinna lennujaamale. Uus raudteeühendus parandab juurdepääsu konkureerivale Riia lennujaamale. Lennunduspoliitika alal teadlike otsuste tegemiseks peaks Majandus- ja Kommunikatsiooniministeerium koostama perioodiliselt õhuühenduste ülevaateid, mis annaksid olulise sisendi lennundusprojektide kavandamise ja projektide valimise tarvis (üksikasjaliku analüüsi leiate 2. peatükist jaotisest „Lennunduspoliitika“). Kooskõlas uuringu soovitustega institutsionaalsete reformide kohta peaks kavandatud transpordisektori regulaator tegema järelevalvet Tallinna lennujaama majandusliku tõhususe üle lennuühenduste pakkumisel. Suuremate innovatsioonile keskendunud asutustega peetava dialoogi kaudu tuleks välja töötada transporditehnoloogia arengukava Kavandatav Tehniliste Vahendite Keskus (TVK) tuleks panna juhtima transpordi valdkonnas selgete innovatsioonieesmärkide ja -prioriteetide väljatöötamist transporditehnoloogia arengukava (TTAK) kaudu. See peaks ühe osana TTAK sagedase ajakohastamise strateegiast hõlmama pidevat struktureeritud dialoogi suuremate innovatsioonile keskendunud uurimisasutustega. TVK alla loodud spetsiaalne töörühm peaks juhtima ja suunama seda tehnoloogia tulevast mõju transpordile käsitlevat tööd, mis omakorda oleks aluseks transpordi üldkavale. Uute liikuvusteenuste reguleerimisel tuleks kasutada põhimõttepõhist lähenemisviisi See võimaldaks reageerida uutele liikuvusteenustele järjepidevalt ja õigel ajal, aidates ühtlasi tagada nende võimalike eeliste realiseerumise ning minimeerida nende kulud ja negatiivsed välismõjud. Rakendatavad põhimõtted peaksid põhinema ITF-i ja OECD poolt varem väljendatutel ning need tuleks siduda säästva linnaliikuvuse kavaga. Transpordisüsteemi jaoks tuleks koostada üleriigiline kliimamuutusekindluse analüüs See tagaks, et olulisemate transpordivarade asukoha ja tehnilise lahendusega seotud otsustes ja olemasolevate varade hooldusega seotud valikutes arvestatakse süstemaatiliselt ka kliimariske. Eesti peaks arvestama asjaomaste EL-i poliitikameetmete ja nõuetega ning tuginema selle tarbeks vastavad analüüsiraamistikud kasutusele võtnud rahvusvaheliste organisatsioonide ja teiste riikide tööle. 1.2. Kuidas tuleks mõõta reformide edenemist ja selle kohta teavet jagada? Transpordipoliitikareformide edenemist on võimalik tõhusalt üldsusele tutvustada näitajate raamistiku abil. Selle projekti käigus töötati koostöös Eestiga välja hulk transpordipoliitika üldeesmärkidega seotud 27 näitajaid. Sealjuures võeti arvesse rahvusvahelisi tavasid, teaduskirjandust ja praegust Eesti transpordi üldkava. Transpordipoliitika eesmärkide määramiseks ja nende poole pürgimisel tehtud edusammude mõõtmiseks pole juhendeid ega üht parimat tava. Üks levinuim lähenemisviis on aga tuvastada säästva arengu kolme põhitahuga – keskkond, ühiskond, majandus – seotud eesmärgid ning töötada seejärel kõigi jaoks neist välja konkreetsed näitajad või sihtväärtused (üksikasjaliku analüüsi leiate 3. peatükist). ITF märkis ära üle 200 näitaja, sealhulgas nii vastloodud kui ka juba kasutusel olevad. Ent kui näitajate raamistiku üks peamine eesmärk on teavitada üldsust transpordipoliitikaalastest edusammudest, ei ole suure arvu näitajate kasutamine mõistlik. Seetõttu koostasime kuus põhimõtet kõige asjakohasemate näitajate valimise toetamiseks. Neist ühe kohaselt peab kõigi näitajate abil olema võimalik mõõta kasutajate poolt selgelt tajutavat transpordipoliitika tulemust või sellest saadavat kasu. See on oluline kahel põhjusel. Esiteks ei ole kõik näitajad kõigi kasutajate puhul samavõrd asjakohased, mis tähendab, et vähemalt mõned näitajad peaksid olema seotud konkreetsete kasutajarühmadega. Teiseks peaks tulemusnäitaja olema võimalikult lähedane sellele, kuidas kasutaja poliitika tulemuslikkust kogeb. Näiteks riigi maanteede pikkuse nimetamine pole autokasutajale kuigi kasulik. Asjakohasem oleks märkida, kui palju inimestel kulub keskmiselt päevaste sõitude peale aega ja raha. Eelnimetatud põhimõtteid rakendades määras ITF kindlaks üheksa kasutajarühma (isikliku maanteetranspordi kasutajad, jalgsi või jalgrattaga liiklejad, ühistranspordi kasutajad jne). Kõigi üheksa kasutajarühma jaoks valiti iga järgmise tulemuslikkusmõõtme kohta vähemalt üks näitaja: ligipääsetavus/ühenduvus, taskukohasus, heitkogused ja tõhusus. Tabel 1 pärineb auto- ja taksokasutajatega seotud näitajate raamistikust. Tabel 1. Transpordipoliitika tulemuslikkusnäitajate raamistik – väljavõte Näitaja TP* Näitaja Kirjeldus kategooria eesmärk a. Erareisijatevedu maanteel (auto ja takso) Keskmine aeg rahvusvahelise turuni Ligipääsetavus 3 1. Piirini jõudmiseks kuluv aeg autoga jõudmiseks autoga (sh piirimenetlus) 2. Ligipääsetavus linnas Keskmine teelolekuaeg ühe sõidu kohta Ligipääsetavus 2 Ligipääsetavus linnade vahel ja Keskmine teelolekuaeg ühe sõidu kohta Ligipääsetavus 2 3. maapiirkondades 4. Kütusesäästlikkus Energiatarbimine (kWh/skm) Tõhusus 3 5. CO2 heitkogus CO2 heitkogus kokku ja ühe skm kohta Heitkogused 1 6. Sõidukipargi keskmine vanus Registreeritud sõidukite keskmine vanus Heitkogused 1 Erasõidukitele tehtavad kulutused, protsent Taskukohasus 2 7. Erasõidukite taskukohasus leibkonna sissetulekust elanikkonna alumises kvartiilis Märkused: (*) TP = transpordipoliitika eesmärgid. 1 = keskkonnaeesmärgid, 2 = ühiskondlikud eesmärgid, 3 = majanduslikud eesmärgid. EL-i transpordipoliitika valges raamatus (Euroopa Komisjon 2011) esitatud kogu EL-i hõlmavate transpordipoliitika eesmärkide saavutamise edenemist saab jälgida samas näitajate raamistikus tehtud edusammude kaudu. 28 1.3. Kui ambitsioonikad peavad olema transpordipoliitika reformid, et saavutada olulisi edusamme? Eestiga koostöös ellu viidud poliitikauuringu kvantitatiivses osas mudeldati kolm stsenaariumit erinevate valikute kohta seoses kümne uuritud poliitikavaldkonna jaoks soovitatud poliitikareformidega. Nende stsenaariumide näol ei ole tegemist tervikliku poliitikakavaga, vaid need koostati pigem selliste reformide tõenäolise mõju hindamiseks, mida sai praegu olemas olevate andmete abil mudeldada. Need on loodud andma vastuse küsimusele „Mis juhtuks, kui ...?“ erinevate võimalike reformivalikute puhul ja nende mõjude kohta (üksikasjaliku analüüsi leiate 4. peatükist). Iga transpordisektori haru puhul võrreldi väga ambitsioonika (High Ambition – HA) ja väheambitsioonika (Low Ambition – LA) reformimise stsenaariumeid senise olukorra jätkamise (Business As Usual – BAU) stsenaariumiga ehk praeguse transpordipoliitika mittemuutmisega. HA-stsenaarium valiti kujutama seda, mis oleks võimalik tugeva poliitilise pühendumuse, transpordireformi kindla prioriseerimise ja kestliku kasvu korral. LA-stsenaarium kujutab reformikava mõju olukorras, kus mõnda meedet ei rakendata täielikult või rakendatakse olulise viibimisega. BAU-stsenaariumi puhul eeldatakse, et poliitika ei muutu, ning võetakse arvesse ainult rahvastiku ja SKP muutusi. Eraautode kasutajatele tasude kehtestamine ja kehtivate tasude suurendamine on kõige tõhusam meede kasutajate muudele transpordiliikidele ümber suunamiseks Eestis on olemas potentsiaal liiklejate oluliseks ümbersuunamiseks autodelt säästlikumatele transpordiliikidele, nagu ühistransport ning jalgsi ja jalgrattaga liiklemine. HA-stsenaariumi teostumise korral langeks autorännakute koguosakaal praeguselt tasemelt, mis on enam kui pool, tasemeni vähem kui kolmandik. Need tulemused on suuresti saavutatavad kahe kasutustasude meetme abil: Tallinna-sisene ummikumaks ja kõigile autosõitudele kohaldatav vahemaapõhine teemaks. Selle autodelt muudele transpordiliikidele ülemineku ning auto- ja ühistranspordisõidukite parkide optimeerimise korral võivad ambitsioonika reformimise stsenaariumi kohaselt olla CO2 heitkogused 2050. aastal BAU-stsenaariumiga võrreldes ligi 50% väiksemad. Ehkki kasutajatasudest ajendatud üleminek muudele transpordiliikidele on selle mõju poolest säästlike transpordiliikide kasutamise osakaalule ja CO2 heitkogustele positiivne, tuleks kulude suurenemist hoolikalt hinnata, tagamaks, et üksikisikuid ei koormata ebaõiglaselt. Ühistransporditasude taaskehtestamine ei mõjuta negatiivselt kasutajate arvu ega CO2 heitkoguseid Ühistransporditasude taaskehtestamine pakuks ühistransporti korraldavatele asutustele täiendavat tulude voogu, mille abil teenuseid paremaks muuta, ning kaitseks neid mõnevõrra üldeelarvest eraldatavate rahaliste vahendite määra kõikumise ohu eest. Soovitatava tasude taastamise mõju linnatranspordiliikide kasutamise osakaaludele ja CO2 heitkogustele oleks meie mudeli kohaselt minimaalne. Tasude taaskehtestamine ei pea tingimata kahjustama ka kasutajatevahelist võrdsust ning võimalikud probleemid saaks lahendada otseste sissetulekutoetuste kaudu. 29 Suur raudteekasutajate arvu suhteline kasv annaks raudteetranspordi kasutajaskonna praeguse väiksuse tõttu CO2 heite üldkoguse vähendamisse vaid väikese panuse Mudelis vaadeldi reforme, mille eesmärk on mõjutada kasutajate käitumist, parendades raudteetransporti nii, et raudteetranspordi kasutamine suureneb oluliselt, võrreldes praeguste tasemetega. Raudteereisijate suhteliselt väikese üldise osakaalu tõttu ei muudaks see aga riigi tasandil kuigi palju. Eraautode ja bussiparkide optimeerimine vähendaks maanteeveol tekkivaid ja üldisi CO2 heitkoguseid 27% võrra See reform annab enamiku 30% süsiniku heitkoguse vähenemisest HA-stsenaariumi puhul, võrreldes BAU- stsenaariumiga. Optimeerimine hõlmab nii üleminekut väiksema heitega ja puhtamatele sõidukitele kui ka sõidukite paremat kasutamist (rohkem reisijaid sõiduki kohta). Raudtee elektrifitseerimine võib vähendada vastavat päritolu CO 2 heitkogust 48% võrra, võrreldes praeguse olukorraga kaubaveos Mudelid näitavad, et kõigi raudteeliinide täieliku elektrifitseerimise ja kõikjal elektrilise veojõu rakendamise tulemusena väheneks kaubaveotekkeline heide 48% võrra. Eelnev hinnang põhineb Euroopa keskmisel heitekoefitsiendil elektrienergia tootmises. Aastane CO2 nn well-to-wheel2 heitkogus väheneks kaubaveos enam kui 25 000 tonni võrra. Juba ainuüksi enimkasutatava, Tallinn–Tartu raudteekoridori elektrifitseerimise tulemusena väheneks CO2 heitkogus 22%. See võimaldaks veoettevõtjatel oluliselt raha säästa ning suurendaks ka tõhusust. Raudteereisijateveos on CO2 well-to-wheel heitkoguse vähenemine ka HA-stsenaariumi puhul suhteliselt väike (2000 tonni aastas), sest raudteeliikluse hoogustumine suuresti kustutab elektrifitseerimisest tekkiva kasu. Sõiduautode kasutamiselt raudteetranspordi kasutamisele üleminekust saadav kasu on HA- stsenaariumi puhul suurem, täpsemalt -2% kogu reisijateveotekkelisest heitkogusest ehk ligikaudu 50 000 tonni aastas. 30  Märkused 1 Siin ei ole kasutatud CO2-ekvivalente ka muude heitgaaside (nt NOx, SOx) arvesse võtmiseks, sest see jätaks siinsel juhul vaid mulje petlikust täpsusest. 1 liitris diislikütuses sisaldub CO2 3,07 kg ning CO2-ekvivalenti 3,17 kg, seega ainult 3% rohkem. 2 Well-to-wheel heitkoguse puhul on arvestatud kogu (olelustsükli vältel tekkivat) keskkonnamõju, alates energiaallika tootmisest kuni heitgaasi sõidukist keskkonda paiskamiseni. On olemas ka mõnevõrra kitsam käsitlus, tank-to-wheel, mille puhul arvestatakse vaid otse sõidukist keskkonda paisatud heitgaasi kogust. 31  Kasutatud kirjandus ITF (2018). Private Investment in Transport Infrastructure: Dealing with Uncertainty in Contracts. Pariis: Rahvusvaheline Transpordifoorum. OECD (2019). OECD Economic Surveys: Estonia 2019. Pariis: OECD Publishing. https://doi.org/10.1787/f221b253-en. MKM (2013). Transpordi arengukava. Tallinn: Majandus- ja Kommunikatsiooniministeerium. Euroopa Komisjon (2011). Valge raamat „Euroopa ühtse transpordipiirkonna tegevuskava – Konkurentsivõimelise ja ressursitõhusa transpordisüsteemi suunas“. KOM (2011), 144. 32  2. peatükk Peamiste transpordipoliitika valdkondade hinnang 2.1. Asutuste struktuur Rahvusvaheline transpordifoorum vaatas üle Eesti praeguse transpordipoliitika ning investeeringute, teenuste osutamise ja reguleerimise asutuste korralduse. Selles võeti arvesse hiljutisi asutuste reforme, ettepanekuid, mida Eesti valitsus praegu kaalub, ja varasemaid sektori asutuste reformi soovitusi. Käesolevas peatükis esitatakse selle analüüsi järeldused. Siin tuuakse välja peamised asutuste nõrkused ja pakutakse välja kogum integreeritud asutuste reforme, mis toetaks paremate tulemuste saavutamist peamistes strateegilistes valdkondades, eriti projektide määratlemisel, hindamisel ja valimisel; reguleerimist ja järelevalvet ning eri transpordiliikide ja sektorite ülest kooskõlastamist. On oluline mõista protsesside ja asutuste vastastikust sõltuvust ning sellest tulenevalt tagada paremate tulemuste saavutamiseks vajalike vastastikku toetavate meetmete kehtestamine. Põhiprobleemid Kindel asutuste korraldus on hästitoimiva poliitika- ja õigusraamistiku oluline element. Kaks peamist valdkonda, milles asutuste kvaliteet on eriti oluline, on:  projekti määratlemine, hindamine ja valimine  reguleerimine ja järelevalve. Investeeringute sotsiaalse tulu maksimeerimiseks tuleb neid ülesandeid täita põhjendatud ja järjekindla metoodika alusel. Süsteemne lähenemisviis on vajalik tagamaks, et kõik asjakohased investeerimisvõimalused tuvastatakse sobival ajal, et otsused kajastavad teadlikke valikuid ja et need valikud põhinevad investeerimisvõimaluste eeldatava tootluse hinnangul, mis on koostatud nõuetekohaste ja selgelt määratletud kriteeriumide alusel. Põhjendatud institutsiooniline korraldus on hädavajalik, et tagada heade protsesside järjepidev järgimine, kõrgetasemeliste poliitiliste eesmärkide saavutamine ja sotsiaalsete hüvede maksimeerimine isegi konkureerivate poliitiliste kohustuste olemasolul. Nõuetekohase asutuste struktuuri väljatöötamine ja rakendamine nõuab erilise tähelepanu pööramist juhtimise põhielementidele. Eriti olulised on selgelt jaotatud rollid ja kohustused, piisavad ja asjakohased volitused, vastutus ja läbipaistvus ning süsteemne soorituse hindamine (OECD 2014). Teiseks on vaja sobivaid kooskõlastusmeetmeid, et tagada otsuste optimeerimine eri transpordiliikide lõikes, pakkudes põhjendatud seoseid üksikute projektide ja transpordiliigisiseste valikute ning laiema transpordistrateegia ja muude asjakohaste poliitikavaldkondade vahel. Samamoodi on turumajanduse kasvu toetamiseks hädavajalik hästi toimiv taristut reguleeriv süsteem. Maailmapank (2015) märgib: „Head õigusnormid suudavad määrata poliitika õnnestumise või ebaõnnestumise väljavaated. Uuringud viitavad tugevale seosele reguleerimise kvaliteedi ja majanduskasvu, parema valitsemiskvaliteedi ja elanike kõrgema sissetuleku vahel.” Ühtlasi väidab OECD (2014), et reguleerimisasutuste paremad valitsemistavad suurendavad nende tõhusust ja aitavad kaasa peamiste poliitiliste eesmärkide saavutamisele, muutes neid õiguslikult tugevamaks ning aidates arendada nii nende suutlikkust kui vajalikke koostöösuhteid sidusrühmade vahel. 33 Praegune asutuste korraldus suurendab projektide määratlemise, hindamise ja valimise puudujääke Kuigi projektide hindamispraktikad on paranenud ja tasuvusanalüüsi tehakse laialdasemalt, puuduvad praegu projektide määratlemisele, hindamisele ja valikule üldiselt kohaldatavad juhised. Hindamismeetodid on ebajärjekindlad ja hindamist tehakse sageli liiga hilja, et see saaks projekti valimist märkimisväärselt mõjutada. Praeguse asutuste struktuuri puudused suurendavad märkimisväärselt neid puudujääke ja need tuleb kõrvaldada, kui soovitakse ITFi kavandatud hindamisprotsesside ja -meetodite reforme tõhusalt rakendada. Rahvusvahelise Valuutafondi (IMF) hinnang Eesti projektide valimise tõhususele on madal. Kaks selle tuvastatud probleemi on, et 1) puudub „terviklik süsteem“, mis võimaldaks projekte valida järjepidevate avaldatud kriteeriumide alusel, ja 2) riigi rahastusega projekte ei vaata läbi sõltumatu amet. IMFi hinnangul vajavad need valdkonnad reforme esmajärjekorras ning lisaks on vaja võtta vastu üldkehtiv hindamismetoodika. Lisaks ei avalikustata erinevalt Euroopa Liidu rahastatavatest projektidest riigi rahastusega projektide hinnanguid (IMF, 2019), mis takistab sidusrühmade järelevalvet ja vähendab seega vastutust. OECD tõstatas probleemi, et projekti hindamisele lähenetakse ebajärjekindlalt, märkides, et tasuvusanalüüsi ei ole 2018.–20. aastaks kavandatud taristuprojektidele süsteemselt rakendatud, ja tõi välja, et „arvestades maanteetee- ja raudteetranspordi nagunii märkimisväärset investeeringute taset on ebatõenäoline, et sellisted lisaprojektid tooksid suurt majanduslikku tulu“ (OECD, 2017: 24). Raha väärtuse ja investeeringute sotsiaalmajandusliku mõju hindamiseks vajaliku ühtse raamistiku puudumist peeti peamiseks proovikiviks kõige tootlikumate investeerimisprojektide määratlemisel ning märgiti, et riiklikus transpordi arengukavas 2014–2020 ei olnud tuvastatud konkreetsete algatuste prioriteete (OECD, 2017)3. Nende probleemide olulisust näitavad varasemad uuringud selle kohta, kui oluline on usaldusväärne riiklik investeeringute haldamine ning neis järeldatakse, et korralik kooskõlastamine investeeringute kavandamisel ja selge süsteem, mille alusel projekte valida, suudab katta kuni kaks kolmandikku avaliku sektori kulutuste tõhususe erinevusest (IMF, 2019: 20). Arutelud Eesti ametnikega näitavad, et ehkki viimastel aastatel on võetud laialdasemalt kasutusele ametlikke hindamise metoodikaid, püsib probleem projektide hindamise erinevate lähenemisviiside kasutamisega, sealhulgas ebapiisava ja ebajärjekindla tasuvusanalüüsi rakendamisega. Tasuvusanalüüsi tulemusi ei kasutata tavaliselt võimalike projektide võrdlemiseks eri transpordiliikide piires või nende vahel ning veelgi vähem valdkondade vahel. Nagu taristu kavandamise ja projekti valiku jaotises 2.2 märgitakse, valmistab erilist muret asjaolu, et kulude-tulude analüüsi tehakse sageli liiga hilja, et see võiks projekti valikule mõju avaldada. Selle asemel kasutatakse projekti hinnanguid sageli muudel alustel langetatud valikute tagantjärele põhjendamiseks. Lisaks leidsid Eesti ametnikud, et strateegilise kavandamise funktsioonide jaotamine erinevate organisatsioonide – sealhulgas omavalitsuste, ministeeriumide, Maanteameti ja transpordiettevõtjate – vahel panustab probleemi, et investeeringuid ei võrrelda järjepidavatel alustel, eriti transpordiliikide vahel. OECD (2017) on varasemalt andnud Eestile soovituse kehtestada sõltumatu taristuvaldkonna nõuandva kogu, mille vastutusalasse kuuluksid kõik taristu sektorid. See reform panustaks märkimisväärselt projekti hindamise ja valiku järjepidevate lähenemisviiside kasutuselevõttu. Tänu sellele saaks töötada välja projektihindamismetoodikaid ja protsessi standardeid, mille valitsus võiks kinnitada nii transpordisektoris kui muudes olulistes taristu sektorites kasutamiseks. Sellise organi ülesanne oleks ka laiaulatuslike taristuauditite läbiviimine ja investeerimisprioriteetide soovitamine, aidates seeläbi töötada välja suurte 34 projektide tööde järjekorda, mille põhjal saaks langetada strateegilisi valikuid. Ametnikud on siiski märkinud, et valitsus ei ole seda väljapakutud reformi seni aktiivselt kaalunud. Asutuste killustatud kohustused takistavad projektide hindamise ja strateegilise poliitika kooskõlastamist Eestis on hästi juurutatud transpordi ja liikuvuse üldkava, milles määratletakse mõned individuaalsed transpordi investeeringute projektid. Ametnikud märgivad siiski, et projektide valimine ning üldkavas seatud kõrgetasemelised eesmärgid ja suundumused pole piisavalt kooskõlastatud. Näiteks suureneb Maanteeametis järjepidevalt lõhe eelarve eraldiste ja täitmist vajavate projektide arvu vahel, kusjuures pingeid suurendavad vajadus hooldada olemasolevaid varasid, millega seni pole tegeletud, ning täita poliitilisi kohustusi uue taristu väljatöötamiseks. See on kooskõlas varasemate OECD leidudega, mille kohaselt on strateegilise kooskõlastamise puudumine oluline tegur, mis vähendab transporditaristu investeeringute tõhusust Eestis (OECD, 2017). Laiemas plaanis märgitakse jaotises 2.2, et puudub protsess, mille alusel liikuda projektipõhiste otsuste ning suurema valikute kogumiku väljatöötamise vahel, mille põhjus on eelarvepiirangud ning vajadus kasutada prioriteetide määratlemiseks kindlaksmääratud kriteeriume. Lisaks toovad ametnikud välja erinevuse riikliku tasandi planeerimise ning kohalike ja piirkondlike prioriteetide vahel. See strateegilise kooskõlastamise teine mõõde on eriti oluline, arvestades et OECD riikides keskendutakse transpordi kavandamisel üha enam ligipääsetavusele. Suuremat tähtsust omistatakse kõigile elanikkonna liikmetele minimaalselt vastuvõetava ligipääsu taseme pakkumisele. Mõnede piirkondlike transpordifunktsioonide tsentraliseerimine 2020. aasta jaanuaris toimunud maavalitsuse kaotamise tõttu võib suurendada muret, et otsuste langetajad ei mõista hästi piirkondlikke prioriteete ega arvesta nendega. Asutuste suutlikkust piiravad mastaabiküsimused Transpordisektori praeguse transpordiliigi-keskse asutuste ülesehituse peamine tagajärg väikeriigi kontekstis on, et mõnede asutuste väike mastaap ei võimalda neil tõenäoliselt kriitilist massi saavutada. See tähendab, et nad ei pruugi olla võimelised arendama ja säilitama piisavalt ekspertteadmisi, mis toetaksid nende rollide strateegiliste lähenemisviiside arengut, näiteks parimat tava reguleeriva poliitika ja praktikate vastuvõttu. Näiteks töötab Lennuametis umbes 32 inimest ja ametnike sõnul on mitmetes välisauditites toodud välja organisatsioonsiseseid töövõime probleeme. Mitme asutuse väike mastaap tähendab ka seda, et tugiteenuste pakkumises ei ole võimalik mastaabisäästu saavutada ning see suurendab veelgi ressurssidega seotud probleeme. Ametnikud avaldasid aga muret seoses Maanteeameti ja muudes transpordiliikides võrdväärseid kohustusi täitvate teiste ametite märgatava erinevusega suuruse ning poliitilistele protsessidele avaldatava mõju osas. Sellise dünaamika tõttu võib olla keerulisem töötada välja tasakaalustatud strateegilisi kavasid, mis sisaldaksid nõuetekohaseid ja integreeritud transpordilahendusi. Mitme transpordisektori asutuse väike mastaap tähendab ka seda, et olemasolevat potentsiaalset mastaabisäästu ei kasutata ära. Laiemas kontekstis on Eesti valitsus võtnud vastu asutuste ühinemiste ja konsolideerimise kava. Näiteks loodi hiljuti endise Tarbijakaitseameti ja Tehnilise Järelevalve Ameti liitmisega Tarbijakaitse ja Tehnilise Järelevalve Amet (TTJA). Siiski on veel ruumi märkimisväärseks konsolideerimiseks. Peamiste asutuste valitsemises esineb olulisi puudujääke Eestis kasutatakse transpordisektoris märkimisväärselt ära „sõltumatu ameti“ mudelit, kus asutustele nagu Maanteeamet, TTJA ja Lennuamet on kehtestatud oma põhimäärus. Need põhimäärused on aga pigem teisesed kui esmased õigusaktid ning need kiidab heaks minister, mitte Riigikogu. Reguleerivad õigusaktid 35 nõuavad, et need põhimäärused sätestaksid muude valitsemisküsimuste seas ka ameti haldusala ja ülesanded, organisatsioonilise ja halduskorralduse (sh direktorite õigused ja kohustused), asutuse struktuuri ja selle haldusüksuste ülesanded4. Praktikas sisaldavad põhimäärused neis küsimustes siiski suhteliselt vähe üksikasju ja kehtestatud nõuded on omavahel vaid piiratud määral kooskõlas, kusjuures OECD (2014) on toonud välja reguleerimisasutuste valitsemise parimate tavade põhimõtted. Näiteks sätestatakse Maanteeameti põhimääruses organisatsiooni strateegilise rolliga seoses üksnes, et selle funktsioon on „osalemine oma tegevusvaldkonnaga seotud poliitikate, strateegiate ja arengukavade väljatöötamisel ning rahvusvaheliste projektide ettevalmistamisel ja läbiviimisel“5. See ei selgita aga Maanteeameti konkreetset rolli ega selle suhet teiste asutustega poliitika, õigusaktide jms kontekstis. Sõltumatute ametite põhimääruses tuleb selgelt ja täpselt tuvastada ja kirjeldada nende kohustusi seoses peamiste ülesannetega ja protsesse, mida tuleb nende täitmisel järgida. See peaks asutused selgelt määratlema ning andma neile piisavalt sõltumatust vastavalt rollile, mida nad täitma peavad. Hea valitsemistava on hästitoimiva asutuste struktuuri põhikomponent ja see struktuur on omakorda oluline tagamaks, et pidevalt peetakse kinni põhjendatud protsessidest ning otsuste langetamine ei sõltu poliitilisest ja/või sidusrühmade survest. On äärmiselt oluline, et võtmeorganisatsioonid saavad anda ausaid ja sõltumatuid nõuandeid ja hinnanguid parema poliitilise arutelu ja otsuste langetamise toetamiseks. Maanteede varahalduse korraldus ja rahastamine piiravad rahastamisvõimalusi ja põhjustavad tõhususe kulutusi Eesti kogub kütusemaksude kaudu peaaegu kaks korda rohkem raha kui Maanteeametile üldeelarvest eraldatakse. Kuni 2015. aastani oli Maanteeameti rahastus tagatud kütusemaksude osa eraldamisega. Sellest poliitikast loobuti aga eelarve suurema paindlikkuse kasuks. Siiani pole see muudatus Maanteeameti rahastamise stabiilsust märkimisväärselt mõjutanud. Siiski on paljude riikide ühine kogemus, et kui majandustsüklite languse ajal eelarveolukord halveneb, muutuvad kuluprioriteedid ja tõenäoliselt ei suudeta üldeelarvest tagada taristule piisavat rahastust. Sellel on negatiivne mõju hoolduse kavandamisele ning uute investeeringute elutsükli kulude optimeerimine on raskendatud. Tagajärjed on näiteks teehoolduse edasi lükkamine, mis muudab kokkuvõttes hoolduse kulukamaks, või taristu kvaliteedi püsiv langus. Praegune rahastamiskord ja asjaolu, et Maanteeametit juhitakse pigem avalik-õigusliku asutuse kui riigi omandis oleva ettevõttena, piiravad samuti Eesti strateegilisi võimalusi taristu rahastamises. Kui riigi omandis olev ettevõte haldaks maanteetaristut ja teeniks enam kui 50% oma kuludest tasa transpordimaksude abil (koos muude tingimustega), saaks ettevõte võtta laenu oma bilansi arvelt ning võlga ei arvestataks Eesti riigivõla piirmääras. Asutuste reformi võimalused Ülaltoodud arutelus tuuakse välja transpordi kavandamise ja pakkumise probleemid Eestis, milles on olulisi asutustega seotud elemente. Samuti võib eeldada, et projekti kavandamise ja hindamise peatükis esitatud reformisoovitusi rakendatakse tõhusamalt, kui neid toetab asjakohane asutuste reform. Asutuste reforme tuleks rakendada asutustele, mis vastutavad projektide hindamise, projektide valiku, hanke, toimimise ja hoolduse ning reguleerimise ja järelevalve eest. Nende reformide kaks peamist eesmärki peaksid olema:  tugevdada seoseid transpordipoliitika strateegiliste suundade ja üksikute projektide valimise vahel  võimaldada ja toetada analüütikute staatuse muutmist, nagu pakuti välja jaotises 2.2, ning vähendada otsuste langetamist poliitilistel, mitte tehnilistel alustel. 36 Joonis 1 määratleb sektori suurimate organisatsioonide kavandatava struktuuri, samas kui edasises arutelus esitatakse rohkem üksikasju kavandatavate muudatuste, nende põhjenduste ja eeldatava kasu kohta. Joonis 1. Eesti transpordisektori kavandatud asutuste struktuur “Lead Committee” Strategic Policy Division Technical Resource Centre • consultation during development Develops guidance, cross- of draft transport masterplans • Within MEAC portfolio, internal consulting role • Dedicated division • Within MEAC, but quasi-independent • Specific, detailed statute addressing • Develops strategic directions the TRC’s role, functions and other key Infrastructure Estonia • Reviews and assesses proposals governance issues. (independent advisory body) • Development of masterplan • Specific, detailed statute Project Procurement • Multi-disciplinary board appraisal (incl. PPP policy) • Infra appraisals & priority lists Telecoms Mobility Agency Energy • Multi-modal, supervisory and service delivery functions Water Infrastructure manager (SOE) Regulatory & supervisory Infrastructure Infrastructure Infrastructure agency Road (Project ID, manager manager manager Independent body constituted by legislation appraisal, delivery, Aviation Ports Rail (Current TTJA roles, plus regulatory maintenance). functions of transport administrations) Consumer Safety Economic protection Märge: MKM = Majandus- ja Kommunikatsiooniministeerium Luua Majandus- ja Kommunikatsiooniministeeriumis strateegilise poliitika osakond, mida toetab tehniliste vahendite keskus Kooskõlas Majandus- ja Kommunikatsiooniministeeriumi (MKM) juhitava rolliga transpordi ja liikuvuse arengukava väljatöötamisel tuleks ministeeriumi juurde luua heade vahenditega strateegilise poliitika osakond. Selle peamised kohustused peaksid olema strateegiliste poliitiliste suundade väljatöötamine, transpordiliikide-ülese kooskõlastamise tagamine ning üheste projektide määratlemise, hindamise ja valiku protsesside ning metoodiliste nõuete kehtestamine. Strateegilise poliitika osakond peaks vastutama ka jaotises 2.2 soovitatud kõrgetasemelise transpordimudeli väljatöötamise eest. Eraldiseisvad taristu haldusasutused peaksid esmajärjekorras vastutama algse projekti määratlemise ja hindamise eest, võttes arvesse MKMi kehtestatud strateegilise poliitika parameetreid. MKMi strateegilise poliitika osakond peaks aga vastutama nii üksikute projektide hinnangute kvaliteedi tagamise kui ministrite nõustamise eest projektide valimisel nii transpordi ja liikuvuse tegevuskava kui laiemas kontekstis. Jaotises 2.2 tuuakse välja haldusprotsesside muutmise vajadus, et projektide valikust saaks ametlikum ja süsteemsem protsess, kus otsuste langetajad valivad variantide seast, mis on juba läbinud algse kooskõlastatud hindamise, selmet langetada killustatud otsuseid. Ka hankeid puudutavas peatükis tehakse ettepanek muuta taristuga seotud hankeotsused süsteemsemaks ja tõenduspõhisemaks. MKMi vastav osakond peaks vastutama nende reformide elluviimise eest ning seda peaks toetama selleks ette nähtud tehniliste vahendite keskus (TVK), mis asub samas osakonnas. TVK peaks olulistes valdkondades suurendama tehnilist võimekust, toetades seega MKM-i võimet tegevusi kvaliteetselt strateegiliselt 37 kavandada ning koostada kvaliteetseid hankestrateegiaid. TVK töötajaid tuleks lähetada ka transpordiettevõtetesse, et nad saaksid projekti määratlemise ja algse väljatöötamise käigus oma teadmisi jagada. TVKd peaks juhtima transpordi peaökonomist, nagu on pakutud välja peatükis 2.2. TVK peamine ülesanne peaks olema üksikasjalike metoodiliste ja protsessinõuete väljatöötamine projektide hindamiseks ja oluliste taristu varade hankimiseks. Hangete korral oleks väiksemate projektide puhul nõutud lihtsustatud nõuded ja juhendmaterjalid portfelli tasandil. See roll peaks hõlmama rakendusjuhendite väljatöötamist ja levitamist ning koolitust ja tehnilise toe pakkumist asjaomaste asutuste analüütikutele. Nende TVK ülesannete täitmiseks peaks piisama umbes 12–15 põhitöötajast, ehkki ametnike lähetamise jaoks oleks vaja täiendavaid ressursse. Minister peaks TVK koostatud metoodika suunised heaks kiitma ning nõudma nende kasutamist kogu transpordisektoris. Nende alusel võiks seejärel valitsus kiita heaks ühtse metoodika ja protsessid, mida kasutataks kõigis avaliku sektori taristuinvesteeringute ja -hangete valdkondades, aidates seega tagada, et kõigis portfelli osades rakendatakse järjepidevalt parimaid tavasid. Kui Eesti valitsus peaks võtma vastu avaliku ja erasektori partnerlust6 toetava poliitika, tuleks hankesuunistes selle teemaga konkreetselt tegeleda, esitades selged eeskirjad, mille põhjal selle kasutuse asjakohasust konkreetses kontekstis määrata, eelistatult kogu avalikus sektoris rakendatava kindla õigusraamistiku kontekstis. Lisaks võiks TVK olla sobilik asutus, milles töötada välja Põhja- ja Baltimaade transpordimudeleid ja hindamise valdkonna ekspertide võrgustik, nagu on soovitatud jaotises 2.2. TVK põhifunktsioon oleks pakkuda tehnilisi nõuandeid ja abi taristu haldusasutustele projektide määratlemise ja hindamise ning hanke valdkonnas. See, kas TVK suudab nende valdkondade tavasid ja tulemusi parandada, sõltub selle võimest moodustada tihedaid koostöösidemeid enda ja taristuettevõtjate vahel. Sidemete arendamist saab toetada TVK töötajate lähetamisega neisse asutustesse sektorisiseste konsultantidena. See võimaldaks neil teha asutustega tihedat ja jätkusuutlikku koostööd juba projekti väljatöötamise algusjärgus. Seda, kas taristu haldusasutuses peab pidevalt olema kohal üks TVK spetsialist kavandamiseks ja teine hangeteks, sõltub asutuse kavandamis- ja hanketoimingute mastaabist. Näiteks võib maantee- ja raudteetaristu ettevõtetes olla vaja kahte täiskohaga spetsialisti, samas kui lennunduses ja mereliikluses on võimalik tuge omavahel jagada. Pikemas plaanis peaks TVK määrama projektihindamiste ja hankeprotsesside piisavuse, võrreldes neid avaldatud ja valitsuse heakskiidetud metoodika ja protsessinõuetega ning andes oma hinnangu. Projektide valikuprotsessi usaldusväärseks muutmiseks peab projekti esitajast sõltumatu asutus projekti hindamiskvaliteeti regulaarselt hindama. Seda funktsiooni täidaks transpordi peaökonomist. Enne, kui kaalutakse projektihinnangute heakskiitmist, tuleks neid hinnata selle osas, kas need on kooskõlas vastuvõetud nõuetega. Analoogset protsessi rakendaks ka riigihangete peadirektor. See TVK võtmeroll aitaks seega märkimisväärselt kaasa OECD varasema soovituse rakendamisele, mille kohaselt peaks Eesti viima läbi kõigi oluliste taristuprojektide ennetava tasuvusanalüüsi, mis põhineb ühtsel metoodikal. Selle abil saaks töötada välja „kavandatava investeeringu kulutustele vastava tulu ning sotsiaalmajandusliku mõju hindamiseks vajaliku ühtse raamistiku“, mis tagaks et selgitatakse välja ja seatakse tähtsuse järjekorda kõige tulemuslikumad taristuprojektid. (OECD, 2017) TVK oleks ka sobiv asutus, milles viia läbi jaotises 2.2 välja pakutud varasemate investeerimissoovituste süsteemset ja järjepidevamat järelhindamist. Nagu eelnevalt märgitud, on järelhindamine oluline vahend analüütiliste meetodite ennetavaks parandamiseks. Seega looks TVK-le kui üksikasjalike projekti hindamismeetodite ja juhiste väljatöötamise eest vastutavale asutusele selle ülesande andmine tõhusa tagasisidemehhanismi. TVK vastutus selle ülesande eest tagab ka, et sellega tegeletakse algsetest projekti esitajatest sõltumatult, toetades analüüside kvaliteeti ja usaldusväärsust. Järelkontrolli rolli hangetes 38 ilmestatakse ITFi väljaandes „Motorway cost estimation review: the case of Slovakia“ („Maantee maksumuse prognoosi ülevaade: Slovakkia näide“, ITF, 2018). TVK peaks olema selgelt piiritletud organisatsioon. TVK sõltumatus tuleks tagada eraldiseisva isikliku põhimäärusega, et see saaks oma tehnilisi ülesandeid tõhusalt täita. Tasuks kaaluda võimalust vabastada TVK vähemalt osaliselt avaliku teenistuse standarditest palga ja tingimuste osas, et sellel oleks võimalik kvaliteetseid tehnilisi eksperte värvata ja säilitada. Oluliste taristu varade halduse üleandmine äriühingutele Eesti valitsuse praegu väljatöötatavas liikuvusameti ettepanekus nähakse ette kahe transpordiliikide-üleste kohustustega ameti loomist: riiklik transpordiamet, mis on põhimõtteliselt võrdväärne Rootsi ametiga Trafikverket, ning eraldi reguleeriv ja järelevalveasutus, mis põhineb TTJA-l. Eestil oleks ettepaneku kohaselt tõepoolest vaja luua transpordisektori reguleeriv ja järelevalveasutus, kohandades selle jaoks olemasolevat TTJAd. Reguleeriva ja järelevalveasutuse peamisi aspekte käsitletakse täpsemalt allpool. Lisaks peaks Eesti asutama mitut transpordiliiki hõlmava liikuvusameti. Suuremaid taristuvarasid peaksid aga siiski haldama eraldi äriühingud, mis toimivad riigi omandis olevate ettevõtetena, selle asemel et seda ülesannet täidaks liikuvusamet. Varade halduse üle andmine äriühingule muudab taristu hangete, hoolduse ja ülesannete täitmise märkimisväärselt tõhusamaks. Neid ülesandeid tuleks täita äriühingu moodustamise alusel, rakendades reguleeritavate varade väärtuse mudelit. Selle lähenemisviisi kasutamisel suurte transpordiinvesteeringute puhul tagatakse, et varahalduril on piisavad stiimulid varade tõhusa kättetoimetamise ja haldamise tagamiseks, tarvitades „kogu elutsükli“ lähenemist (nt tagades, et hoolduskavasid ajastatakse ja rakendatakse optimaalselt). See mudel võib märkimisväärselt tõhusust suurendada, kui seda toetab tõhus stiimulite reguleerimise kord (Makovsek ja Veryard, 2016; Makovšek, 2019; Alchin, 2019). Nende võimalike kasude saavutamine praktikas sõltub reguleeriva asutuse sõltumatusest, taristuettevõtjatele selgete stiimulite pakkumisest ja soorituse tulemuste eest vastutuse võtmisest. Neist viimase tingimuse kõige tõenäolisemaks saavutamiseks tuleb taristuettevõtjaid organiseerida transpordiliigi põhiselt, kasutades ära konkreetsete varaliikide soorituse hinnangut. Mõned stiimulipõhiseks reguleerimiseks vajalikud elemendid, näiteks täiustatud reguleeriv raamatupidamissüsteem, on ilmselt juba kehtestatud Eesti juhtivas telekommunikatsioonide haldusettevõttes või energiajaotuse sektoris, mida mõlemat reguleerib sõltumatu amet. See oleks vastavatele sektoritele nähtud ette ka Euroopa Liidu direktiividega. Muud vahendid, näiteks soorituse võrdlusuuringud, on veel välja töötamata (näide on toodud Smith et al., 2019). Transpordiliigi-põhiste taristuhaldusorganite nõuetekohasete aruandlus- ja läbipaistvusmehhanismide kõige lihtsamaks saavutamiseks tuleks need asutada riigi omandis olevate ettevõtetena. See tagab selgete raamatupidamisarvestuse ja aruandluse nõuete olemasolu ja muude oluliste juhtimisnõuete täitmise. Riigi omandis oleva ettevõtte mudel on juba Eesti transpordisektoris kasutusel (nt Eesti Raudtee AS, Tallinna Lennujaam) ja seda tuleks laiendada teistele transpordiliikidele. Eelkõige tagaks riigi omandis oleva ettevõtte mudeli kasutuselevõtt teedevõrgus parema soorituse halduse raamistiku peamistele maanteevaradele. Taristuhalduse sellise lähenemisviisi vastuvõtmiseks on vaja täiendavaid asutuste reforme, milles sätestatakse vastutavate asutuste strateegiline suund ning tõhus reguleerimine ja järelevalve. Kaasatud asutusi käsitletakse lähemalt allpool ja igaüks hõlmab kõiki transpordiliike. See aitab tagada strateegilisema lähenemisviisi projektide valimisel ning suurendab reguleerivate asutuste suutlikkust ja tõhusust. Järgmised soovitused käsitlevad nende asutuste rolli ja staatust. Võimalus on kasutada reguleeritud alusvara mudelit, mis pakub sarnaseid stiimulite eeliseid, isegi kui halduri või taristuettevõtja tegevust tuleb toetada. Siin on oluline tagada, et varasse investeerimise otsust osaliselt toetanud avalike teenuste osutamise kohustused on selgelt piiritletud ja nende ulatus määratud. 39 Sellise selge piiritlemise protsessiga tagatakse algsete investeerimisvalikute langetamisel läbipaistvus ja vastutus ning võimalus rakendada sooritusjuhtimise distsipliine, isegi kui varainvesteering ei vasta täielikult ärilistele kaalutlustele. Veendumine, et taristu varasid haldavad riigi omandusega ettevõtteid rahastavad kasutajad Kui taristu haldamise eest vastutavad ettevõtted saavad oma ülesannete täitmist rahastada kasutajatasude kaudu, ei sõltu nad enam iga-aastase eelarve eraldamise protsessist. Isegi kui see pole täielikult võimalik (kuna toetused on vajalikud), vajavad need siiski suuremat sõltumatust. Iseäranis Maanteeameti puhul peaks Eesti olema valmis muutma seda riigi omandis olevaks ettevõtteks ja suurendama selle rahastuse sõltumatust, kehtestades vahemaapõhised kasutustasud. Pikas perspektiivis aitab stabiilse rahastamise kättesaadavus säilitada hooldus- ja hankeülesannete tõhusust. Uuel maantee-ettevõttel oleks lisaks võimalik võtta laenu oma bilansi arvelt ja rahastada uut taristut ilma Eesti ametlikku riigivõlga suurendamata, eeldusel et saavutatakse piisav rahastamise sõltumatus. Avaliku ja erasektori partnerluse võimalus, mida Eesti praegu kaalub, ei ole nii hea variant, nagu on kirjeldatud ka punktis 2.4 „Taristu rahastamine ja erarahastamise roll”. Eesti ametnikud ütlesid selgelt, et teemaksu kehtestamist Eestis ei peeta praegu poliitiliselt soovitavaks. Eesti liiklejad maksavad aga maanteetaristu eest juba nagunii kütusemaksude kaudu. Tarbijahindade omakapitali piiramiseks on töötatud välja meetmed, näiteks võrgusisene ristsubsideerimine. Lisaks saab kasutajatasusid muuta poliitiliselt vastuvõetavamaks, tagastades lühikeses kuni keskmises perspektiivis kommertsliikluse kütusemaksud. Nende küsimuste ja variantide pikem arutelu sisaldub punktis 2.7 „Maanteevedude reguleerimine“ ja 2.5 „Kasutajate käitumise ja ühistranspordipoliitika juhtimine“. Reguleeriva ja järelevalveameti loomine, mis vastutab kõigi transpordiliikide eest MKMis praegu väljatöötatavates ettepanekutes nähakse ette reguleeriva ja järelevalveasutuse loomist. Ametnikud tõid välja, et hiljuti loodud TTJA moodustab eeldatavasti kavandatava reguleeriva ja järelevalveasutuse tuuma ning see võtab enda kanda reguleerivad ja järelevalveülesanded, mida praegu täidavad lisaks muudele ülesannetele konkreetsete transpordiliikide asutused. See kajastab tõsiasja, et TTJA on Eestis oluline reguleeriv asutus, mille vastutusala hõlmab mitut sektorit. Nende ülesannete andmine TTJA-le peaks mitmel viisil parandama reguleerivat haldust ja jõustamist. Esiteks toetab transpordivaldkonna reguleerivate ülesannete koondamine juba olemasolevasse mitut sektorit hõlmavasse reguleerivasse asutusse parimate tavade kasutuselevõttu, reguleerimisvaldkonna ekspertteadmise arendamist ja nende ekspertteadmiste paremat rakendamist, võimaldades neid kõigis transpordiliikides hõlpsamini kasutada. Teiseks märgivad Eesti ametnikud, et TTJA moodustamine on juba aidanud saavutada mastaabisäästu. Reguleerivate toimingute edasine konsolideerimine peaks valdkonnale veelgi enam kasu tooma. Kolmandaks suurendab mitme sektori eest vastutava ühe reguleeriva asutuse loomine reguleerivate lähenemisviiside järjepidevust, suurendades reguleerimisvaldkonna usaldusväärsust ning vähendades sektoritevaheliste reguleerimisvaldkonna lähenemisviiside erinevusest põhjustatud majanduslike moonutuste riski. Mitut valdkonda hõlmavaid reguleerivaid asutusi peetakse ka üldiselt vastupidavamaks äri- või poliitilistele huvidele. Neid kasutatakse Euroopas suhteliselt laialdaselt, eriti väiksemates riikides, mis viitab mastaabisäästu olulisusele ja sellega seotud vajadusele tagada, et reguleerivatel asutustel oleks kriitiline mass ja nad kasutaksid nappe ekspertteadmisi optimaalselt ära. Uuringud näitavad selget suundumust luua mitut valdkonda hõlmavaid ameteid, mille reguleerimisala aja jooksul laieneb (Jordana ja Levi-Faur, 2010). Ehkki TTJA täidab praegu nii ohutuse reguleerimise kui ka tarbijakaitsega seotud reguleerivaid ja järelevalveülesandeid, tuleks reguleeriva ja järelevalveasutuse reguleerimisala laiendada, et see hõlmaks ka kolmandat laia reguleerimisvaldkonda: majanduslikku reguleerimist. Iseäranis vajalik on, et see täidaks 40 neid ülesandeid seoses eelnevalt väljapakutud konkreetse transpordiliigi ametitega, mis tuleks luua riigi omandis olevate ettevõtetena. Reguleeritavate varade väärtuse mudelil põhineva äriühingu varahaldusmudeli kasutuselevõtu eelised saavutatakse vaid juhul, kui taristuettevõtjad alluvad tõhusale reguleerivale süsteemile, mis kehtestab nõuetekohased stiimulid ja distsipliini. Nende ülesannete väljatöötamiseks oleks vaja veel umbes 20 töötajat. Selle osakonna põhitöötajad peaksid olema kõrgelt haritud tööstusökonomistid, kes on hästi kursis stiimulipõhise reguleerimise ökonoomikaga, ja neid peaks juhtima peaökonomist. Osakonna rolli võib aja jooksul välja töötada ning sellele vajadusel töötajaid lisada. Ametite piisava sõltumatuse tagamine valitsusest Sõltumatu reguleeriva asutuse mudelit on viimastel aastakümnetel laialdaselt kasutatud, kuna valitsused soovivad suurendada reguleerivate struktuuride usaldusväärsust ning vähendada tehingukulusid, minimeerides igapäevaste otsuste langetamises poliitilist sekkumist. Eesmärk ei ole vähendada ministrite otsustusõigust, vaid säilitada stabiilne ja järjekindel majandussuund suure mõjuga poliitiliste otsuste langetamisel. Eesti transpordisektoris on praegu mitu ametit, mis üldiselt järgivad seda mudelit (nt TTJA ja Maanteeamet). Nende organisatsioonide asutamise põhimääruse puudused piiravad aga praktikas nende sõltumatust ja juhtimiskord ei järgi parimate tavade põhimõtteid. Kavandatav reguleeriv ja järelevalveasutus oleks praegusest TTJAst rohkemate volitustega suurem organisatsioon. Eriliselt tuleks kaaluda, millist juhtimiskorda selles ametis rakendaks. Tuleks soodustada reguleeriva ja järelevalveameti loomist täielikult sõltumatu ametina, millel on oma esmased õigusaktid. Põhimääruses tuleks piisavalt üksikasjalikult sätestada ameti konkreetne roll, ülesanded, volitused, juhtimiskord, vastutus ja rahastus ning need sätted peaksid olema kooskõlas asjaomaste parimate tavade põhimõtetega (OECD, 2014; Maailmapank, 2019). Tuleb hoolikalt jälgida, et reguleeriva ja järelevalveasutuse ülesannete vahel ei tekiks konflikte. Näiteks näivad mõned TTJA praegused projekti elluviimisega seotud ülesanded olevat sobivalt ümberjaotatud7. Lisaks ülalnimetatud ülesannetele peaks reguleeriv ja järelevalveasutus andma tegevuste tõhususe kohta aru ka taristu haldusasutustele. Sõltumatu taristu nõuandva kogu loomine OECD on varasemalt andnud Eestile soovituse kehtestada sõltumatu taristuvaldkonna nõuandev kogu (OECD 2017). Ka IMF on toonud välja projektide valiku kui olulise reformi vajava valdkonna ja rõhutanud eriti asjaolu, et riikliku rahastusega projekte ei vaata enne eelarvesse lisamist üle organ, mis oleks projekti esitanud ministeeriumist sõltumatu (IMF, 2019). Eespool väljapakutud asutuste reformid koos jaotises 2.2 nimetatud protsessireformidega parandaksid märkimisväärselt projektide määratlemise, hindamise ja valiku tavasid. Siiski on selge, et täiendava meetmena tuleks luua sõltumatu taristu nõuandev kogu. Sõltumatu taristu nõuandemudeli eelised on selle valdkondadeülene vastutusala ja suurel määral sõltumatus valitsusest. Ehkki eespool soovitatud reformide vastuvõtmine parandaks investeeringute jaotust transpordisektoris, tuleb riiklike taristuinvesteeringute optimeerimiseks määratleda aja jooksul tehtavate taristuinvesteeringute jaoks vajaminev summa ja see valdkondade vahel ära jaotada. Seda rolli saab täita ainult mitut valdkonda hõlmav amet. Märgata on selget suundumust selliste ametite loomiseks ning neid nähakse üha enam vajalike vahenditena tagamaks, et taristu kulutused on sihipärased. Taristu pikk eluiga ja suured kulutused tähendavad, et investeerimisotsused peaksid põhinema terviklikul pikaajalisel nägemusel, mis ei sõltu lühiajalistest poliitilistest kaalutlustest. Selle saavutamiseks on oluline asutuste tugevus. Sõltumatud nõuandvad kogud võivad ka parandada sidusrühmade kaasatust, suurendada läbipaistvust ja pakkuda üksikasjaliku analüüsi põhjal usaldusväärset abi. Kõik need tegurid aitavad vähendada lühiajaliste poliitiliste kaalutluste mõju taristuvaldkonnas otsuste tegemisele. 41 Sõltumatu taristu nõuandva kogu loomine aitaks ka tegeleda punktis 2.2 määratletud Eesti vajadusega analüüsida paremini selliste rahvusvaheliste projektide mõjusid, milles Eesti on vaid üks osaleja, võttes arvesse riiklikke transpordiprioriteete ja eesmärke. Üks sedalaadi hiljuti loodud organ on Ühendkuningriigi riikliku infrastruktuuri komisjon (National Infrastructure Commission, NIC). Erinevalt mõnedest samaväärsetest asutustest kuulub selle vastutusalasse väike arv põhiülesandeid: see viib läbi taristu vajaduste üksikasjalikke uuringuid ning esitab igal parlamendiistungil riikliku taristu hinnangu, milles hinnatakse taristu pikaajalisi prioriteete ja tehakse valitsusele soovitusi 8. Selline põhiülesannetele keskendumine on sobiv Eesti piiratud ressurssidega väikeriigi kontekstis, eriti organisatsiooni loomisjärgus. NIC täidab praegu oma ülesandeid umbes 40 ametnikuga. Arvestades Eesti märkimisväärselt väiksemaid taristu vajadusi võiks samaväärne asutus täita oma rolli tunduvalt vähemate töötajatega. Keskpikas perspektiivis tuleks kaaluda selle rolli laiendamist, viies sinna üle tehniliste ressursside keskuse, mille kavandatud asukoht on MKMi strateegilise poliitika osakond. See muudatus oleks tegelikult vahend, mille abil rakendada parimaid tavasid projektide hindamisprotsessides ja metoodikates, mida ITF soovitab TVK-l töötada välja kõigis peamistes taristuvaldkondades. Lisaks tähendaks see, et Eesti Taristu täidaks suurte taristuprojektide puhul ärimudelite sõltumatu kvaliteedi tagamise ülesannet, mida teeb ka näiteks Infrastructure Australia9. Ehkki sõltumatud taristu nõuandekogud koostavad tavaliselt kavandatavate taristuprojektide prioriteetide nimekirju, on need väga harva, kui üldse valitsuste jaoks siduvad. Need on aga äärmiselt usaldusväärsed, kui nende koostamisel rakendatakse kvaliteetseid protsesse ja meetodeid. Sõltumatute nõuandekogude eesmärk ei ole poliitikutelt otsuste langetamise kohustust ära võtta, vaid nad annavad poliitiliste otsuste langetajatele paremat teavet, mis võimaldab neil õigel ajal õigeid otsuseid teha. Kui soovitakse saavutada sõltumatu nõuandekogu potentsiaalseid eeliseid ka praktikas, tuleb erilist tähelepanu pöörata selle ülesehitusele. Selle vastutusalasse peaksid kuuluma kõik peamised taristuvaldkonnad, sh transport, energia, telekommunikatsioon ja vesi. Selle organisatsiooni staatus, juhtimine, rollid, kohustused ja vastutus peaksid olema kavandatud nii, et see suudaks anda kvaliteetset sõltumatut nõu, mida peamised sidusrühmad peavad usaldusväärseks. Sobiva mudeli väljatöötamise aluspunktidena saab kasutada juba väljakujunenud mudeleid, näiteks neid, mis reguleerivad Ühendkuningriigi riikliku infrastruktuuri komisjoni ja Infrastructure Australiat. Arvestada kavandatava TVK loomise nõudeid, näiteks vajadust tagada, et sellel on vajalike tehnilise oskustega töötajad, võib olla otstarbekas kasutada sõltumatu taristu nõuandva kogu loomisel järkjärgulist lähenemisviisi. Nende kogude iseloom meelitab aga ka sageli ligi sobiliku kvalifikatsiooniga inimesi erinevatest valitsusevälistest valdkondadest. Kogude sõltumatu staatus muudab need veelgi köitvamaks, kuna nad saavad värvata töötajaid turupõhise palgakorra alusel ja ei sõltu avaliku teenistuse eeskirjadest. 2.2. Taristu kavandamine ja projekti valimine Selles punktis tuuakse välja järeldused, mis tehti praeguste Eesti transpordisektoris taristu kavandamist, projektide hindamist ja valikut toetavate metoodikate ja protsesside ülevaatuse käigus. Siin antakse Eesti valitsusele soovitusi, kuidas parandada transpordiinvesteeringute hindamist ja valikut. Arvesse võeti kõiki transpordiliike. Metoodikate ja protsesside ülevaade keskendus viisidele, kuidas Eestis transpordisektori taristuinvesteeringute vajadusi hinnatakse. Lisaks küsiti selles, kas need on tuletatud strateegilistest prioriteetidest ja kuidas seda tehakse. Kas Eesti transpordivajaduste hindamisel arvestatakse teiste 42 majandussektorite riski, ebakindlust ja nende vastastikust sõltuvust. Samuti vaadati üle sidusrühmade kaasamise juhtimine. Soovitatavate reformimist vajavate valdkondade väljaselgitamiseks uuris Rahvusvaheline Transpordifoorum (ITF), millisel määral on Eestis projektide hindamine välja töötatud. Peamised küsimused selle väljaselgitamiseks olid: kas valitsusele on kättesaadavad suunised selle kohta, millal valida tasuvusanalüüsi, laiema majandusliku kasu analüüsi, mitme kriteeriumi või muu meetodi vahel? Kas järelkontrolli tehakse süsteemselt ning kas see aitab tulevasi hinnanguid ja otsuseid parandada? Lisaks uuriti mitmeid teisi teemasid, mis olid seotud kavandamis- ja hindamisülesannete korraldusega. Põhiprobleemid Eesti on seadnud ambitsioonikad eesmärgid oma majandusele, ühiskonnale ja keskkonnale, milles transpordisektoril on oluline panus. Mõned neist eesmärkidest on seotud inimeste püüdlustega, teised rahvusvaheliste kohustustega, näiteks kliimamuutuste osas. Eraldiseisvate valdkondade eelarvest, projektidest ja poliitikast tulenevad rohujuure tasandi piirangud võivad riigi praegused ambitsioonikad eesmärgid kahtluse alla seada. Selleks, et selgitada välja, kas tavapärasel viisil jätkamine seda võimaldab, on vaja täiendavat analüüsi. Eesmärkide, kavade ja projektide vaheliste seoste paremaks väljendamiseks tuleb töötada välja lähenemisviis. Mõned selle lähenemisviisi elemendid on juba olemas. Kasulikuks abinõuks oleks lihtsa riikliku transpordimudeli väljatöötamine, kasutades prognoositavat rahvaarvu, SKTd elaniku kohta, autode omamist ja kütusekulu, et selgitada välja liikluse koondprognoose ning kütusekulu, süsinikuheite ja muid mõjusid. Suur osa metoodikatest peab olema kvalitatiivse loomuga ning tuginema eesmärke, kavasid ja eeldatavaid tulemusi siduvale loogilisele struktuurile. See on vahend, mille abil kõik pooled, nii poliitilised, avalikud teenistused kui ametid, saavad osaleda poliitika ja kava loomises ning seda tööd jagada. Nende kõrgetasemeliste probleemide lahendamiseks ja kavandatud reformi jaoks raamistiku loomiseks on toodud välja kolm teemat:  otsuste langetamise kultuur ja protsessi väljatöötamine – analüüs peaks otsusele eelnema, mitte järgnema, ja otsuse langetamiseks vajalikku teavet andma;  inimesed ja analüüsivõime – võimekate analüüsimeeskondade staatust tuleks suurendada ja seda rolli on vaja edasi arendada;  ametialased töövahendid – vaja on süsteemset lähenemist modelleerimise ja hindamise meetoditele Neid analüüsitakse allpool. 43 Analüüs eelneb otsusele, mitte ei järgne sellele, ja annab otsuse langetamiseks vajalikku teavet Eestis tehakse otsuseid sageli poliitilistel kaalutlustel ja isegi kui analüüsi tehakse, on selle eesmärk otsust toetada, mitte esitada otsuste langetajatele erinevaid variante, mida laiemas poliitilises raamistikus arvesse võtta. Analüüs kipub otsusele järgima, mitte selleks vajalikku teavet andma. Ehkki seda tehakse ka mujal, avaldab see suurt survet algse otsuse kvaliteedile, kui selle tegemisel ei kasutata ära usaldusväärset analüüsi, mis annaks poliitilise otsuse langetamise jaoks vajalikku teavet. Selline protsess muudab analüütiku staatuse problemaatiliseks. Siin tekib risk, et analüütik kaotab oma sõltuvuse ning teda mõjutavad poliitikud ja teised skeemi toetajad, kes otsivad analüüsist endale soodsat tulemust. Ei olnud võimalik kindlaks teha, kas Eesti transpordivõrkudes on kehtestatud süsteemne protsess olemasolevate ja võimalike probleemide tuvastamiseks. Kuna praegu puudub teave selle kohta, kus ja millal võib sekkumist vaja olla, puuduvad ka vahendid, millega minna üle kõrgetasemelistelt eesmärkidelt võimalike projektide investeerimise ja hooldustööde kavadele, mille eesmärk on panna paika kava prioriteedid lähtuvalt eelarvest ja muudest piiravatest teguritest. Sellise protsessi puudumine võib selgitada hindamise piiratud rolli praeguses otsustusprotsessis. Mõned uurimistöö käigus kirjeldatud kõige suuremad probleemid on seotud rahvusvaheliste projektidega, milles Eesti on vaid üks osaline. Nende projektide oodatavate tulemuste sidumine Eesti valitsuse riikliku transpordikava eesmärkide ja prioriteetidega ei näi olevat esmatähtis. Analüütikute meeskond on võimekas, kuid selle staatust on vaja tõsta ja rolli edasi arendada. Eestis on transpordi kavandamise, modelleerimise ja hindamise jaoks vajalikke inimressursse võrdlemisi piisavalt. Professionaalsed ressursid on piiratud ja seda tuleks arvestada, kui vaadatakse üle erialainimesele esitatavate nõudmiste ja saadaoleva pakkumise vahelist tasakaalu. Toodi välja järgmised tähelepanekud:  on olemas teadmised tasuvusanalüüsi kui metoodika kohta ja kogemus selle rakendamises, ehkki tavaliselt nähakse seda vaid vahendina juba langetatud otsuse põhjendamiseks;  ollakse teadlikud kõrgetasemeliste poliitiliste eesmärkide ja projektide hindamismeetodite vahelisest lahknemisest ja võimalusest, et alt üles suunatud projektiotsused ei vasta ülevalt alla suunatud poliitilistele eesmärkidele;  tuntakse käepäraseid töövahendeid nagu maanteede arendamise ja hoolduse juhtimissüsteemi mudelid maanteehoolduse prioriteetide seadmiseks;  ollakse teatud määral tuttavad linnalise liikuvuse mudelite ja ühistranspordi skeemide hindamisega, mis on asjakohased Tallinna linnaga seotud otsuste langetamisel. Selle põhjal järeldati, et transpordi analüüsivaldkonna arendamiseks on olemas tugev aluspõhi, kuid probleemiks võib osutuda analüütikute mõjuvõim. Peamine tuvastatud probleem on analüütikute meeskonna liiga madal staatus ja vähene tunnustamine. Selle oluline põhjus on analüüsi ja tõendite piiratud roll otsustusprotsessis. Lisaküsimus on, kuidas peaks Eesti arendama oma erialast võimekust transpordianalüüsis. Väikese riigina on selliste ekspertteadmiste turg paratamatult väike. Ehkki on olemas ka kohalikke erasektorisse kuuluvaid transpordinõustamisettevõtted, mis mängivad Tallinna omavalitsuse analüütikutega koostöö tegemises olulist rolli, on enamikus rahvusvahelistes projektides ülekaalus rahvusvaheliste ettevõtete analüütikud. 44 Vaja on süsteemset lähenemist modelleerimise ja hindamise meetoditele Olemas on mõned kasulikud modelleerimise ja hindamise vahendid ja analüütikud kasutavad neid hästi ära. Puudub aga ametlik juhend ja süsteemne lähenemisviis, mis aitaks otsuste langetajatel probleeme ja prioriteete hinnata. Meetodi puudumine paistab eriti silma strateegilisel tasandil. Skeemipõhisel tasandil on meetodid olemas ja meie arusaama kohaselt moodustasid need meetodid raamistiku laiahaardelisemate kvantifitseerimise ja hindamise meetodite arendamiseks ning nende meetodite vormistamiseks ja dokumenteerimiseks. Strateegilise modelleerimise tööriistad: otsuste langetajad vajavad tõenduspõhisemat meetodit, millega hinnata transpordisektori hindamise eeldatavat mõju teiste ministeeriumite poliitika tõhususele. Selle näited on transpordi mõju süsinikdioksiidiheite eesmärkide saavutamisele ning selle mõju maakasutuspoliitikale. Prioriteetide seadmine ja skeemi valik: ametnikud vajavad protsessi, mis võimaldaks neil paremini tuvastada ja koostada nimekirja võimalikest sekkumistest, millel on kõige enam väärtust kõrgeima taseme eesmärkide täitmise osas, pidades samas kinni eelarvest ja muudest piirangutest. Siin tuleb kasuks tasuvusanalüüs, mis annab teavet prioriteete puudutavate otsuste langetamiseks. Hindamissuunised: on võimalik, et raudtee, ühistranspordi ja maanteeskeemide hindamisel kasutatavaid meetodeid ja väärtusi on töötatud välja mõnevõrra süsteemitult. Näiteks, ehkki intervjueeritud analüütikud teadsid kõik palgaga seotud väärtust sõiduaja kokkuhoius, ei esitatud selle jaoks ühtegi viidet nende või muude hindamisväärtuste dokumentidele. Ehkki mitteametlik teadmiste jagamise süsteem võib olla väikese riigi vajadustele vastamiseks piisav, ilmnesid konfliktid, mis tekkisid väliskonsultantide kaasamisel väliselt rahastatavate projektide hindamisse. Hästi dokumenteeritud meetod ja väärtuste kogum tõendavad Eesti valitsuse pühendumust analüüside kasutamisele ja võimaldavad ametnikel vaidlustada juhtumeid, mida neile esitavad välised rahastajad. Muljet, et praegused hindamismeetodid võivad olla süsteemitud, toetasid veelgi intervjueeritud analüütikud, kes viitasid oma andmetes esinevatele puudujääkidele. Nende seas olid andmed ja prognoosid sõidukite hõivatuse määrade ja sõidu eesmärkide jaotuse kohta, mida on vaja, et teisendada ajasäästu väärtust inimese kohta iga teel oleva sõiduki keskmiseks väärtuseks. Transpordisüsteemi vastupanuvõime erinevatele üleilmsetele riskidele on küsimus, millega tegeletakse paljudes riikides. Kõige pakilisemad on merepinna tõus, tormide ja üleujutuste sagenemine ning peamiste toorainete nappus. Miski ei viidanud sellele, et neid probleeme käsitletakse ka juba Eestis kasutatavas hindamisprotsessis. Linnadevaheline modelleerimine ja hindamine: juba on olemas töövahendid, millega hinnata kõige levinumaid võimalusi sõiduaegade lühendamiseks ning linnadevahelise maanteevõrgu kasutajatega juhtuvate õnnetuste riski hindamiseks. Uuritud ei ole aga nende mudelite sobivust selliste elementide analüüsimiseks nagu ristmike ja linna teedevõrgu vastastikune mõju. Ehkki paljudel juhtudel ei kasutatud peamise reageeringuna ümbersuunamist, saavad linnade vahel reisijad mõnikord valida mitme marsruudi vahel. Nagu paljudes riikides, on üks probleeme teede, eriti kohalike teede hoolduse tase. Ametnikud ei suutnud piisavalt näitlikustada praeguse hoolimatuse põhjustatud kahjulikke mõjusid ega suurema kulutuste taseme eeliseid. Halva kvaliteediga kohalikud teed süvendavad arusaama liikuvusega seotud vaesusest ja kaugemate maapiirkondade eraldatusest. Linnatransport: Tallinna linn ja selle konsultandid on trammivõrgu kavandamisel kasutanud linnalise liikumise mudeli arendamiseks tõhusat lähenemisviisi. Seda mudelit on võimalik täiendada, et see hõlmaks 45 ka bussiteenuseid. On selge, kuidas mudeli abil saab kaardistada trammivõrgustikku jäävaid võimalikke elamu- ja äriarendusi ning seega tuua välja trammide läbilaskevõime ja tulevase nõudluse vahelised seosed. Mudeliga ei saanud aga hinnata kogu transpordi ja maakasutuse vastastikuseid seoseid. Arvestades Tallinna arendamise tempot ja mastaapi võib selline vahend osutuda hindamatuks nii ehituslubade väljastamisotsuste langetamisel kui maa väärtuse suurenemise võimalikul kajastamisel, mida saaks kasutada uute trammiliinide rahastamiseks. Tuleks kaaluda võimalust esitada sellise mudeli loomiseks vajalikke andmeid. Järelhindamine Oli ilmne, et analüütikud olid jälginud mõne hiljutise projekti sooritust. Üks leidudest oli näiteks, et raudtee uuendamine tõi kaasa ootusi ületanud kasvu reisijate arvus. Sellele vaatamata ei tundunud olevat kehtestatud varasemate investeeringute jälgimise ja hindamise süsteemset protsessi kui vahendit soorituse auditeerimiseks või analüüsimeetodite võimalike paranduste uurimiseks. Reformi valdkonnad Selles jaotises on kolme pealkirja all antud mitmeid reformisoovitusi. Need on seotud rolliga, mida analüüs mängib hästi läbimõeldud otsuste langetamises ning selles, millised on teenuste osutamiseks vajalikud inimressursid ja kasutatavad meetodid. Analüüsi tegemine enne otsuse langetamist Otsuste langetamise reform eeldab muudatuste tegemist haldusprotsessis. On oluline minna üle poliitikakujundajateni jõudva killustatud projektide valiku juurest formaalsele ja süsteemsele protsessile. Selle reformi eesmärk on esitada otsuste langetajatele erinevaid variante, laiaulatuslikku ülevaadet iga variandi tõenäolisest sooritusest ning eelarve ja muud piirangud, mida tuleb kava elluviimisel arvestada. Selline reform aitab otsuste langetajatel valida skeeme ja koostada kava, mis aitab kõige paremini saavutada strateegilisi eesmärke. On vaja uusi vahendeid, mille abil anda otsuste langetajatele ülevaadet probleemidest ja olulistest potentsiaalsetest variantidest, mida saab uurida ning edasise analüüsi jaoks hinnata ja seejärel kaaluda variantidena, mida Eesti transpordiinvesteeringute ja hoolduse kavas eelisjärjekorras ellu viia. Kava elluviimise vastutus jaguneks jätkuvalt eri transpordiametite vahel ning Tallinna linna jaoks oleks vaja mitut transpordiliiki hõlmavat kava. Selline analüüs ei tohiks asendada poliitilisi otsuseid, kuna avalikul tasandil peavad otsuste eest vastutama valitsuse ministrid. Eelistatult tuleks aga töötada sellise protsessi loomise nimel, milles tõendid ja analüüs eelnevad otsuste langetamisele ja pakuvad selle jaoks vajalikku teavet. Selle laialdasem aktsepteerimine poliitilisel tasandil oleks kõige olulisem samm läbimõelduma protsessi väljatöötamises. Samuti aitaks see vältida olukorda, kus otsuseid võetakse vastu ükshaaval ning prioriteetide seadmise ja ressursside eraldamise keeruliste valikutega ei tegeleta. Põhiprogrammi kuuluvad projektid peaksid läbima erinevad selgelt määratletud etapid ning igal etapil peaksid olema kodifitseeritud analüütilised nõuded (Joonis 2). Kehtestada tuleks valikuvõimaluste esitamise punkt, milles iga kava määratletakse ja üldjoontes hinnatakse. Rakendada tuleks mõningaid varajase hindamise tehnikaid, et pakkuda teatavat arusaama kava mastaabi ja sisu kohta. Sellele peaks iga eraldiseisva kava jaoks järgnema variantide väljatöötamise etapp, kus võimalikest variantidest valitakse välja kaks või kolm parimat. Eelistatud variandi väljavaliku punktis tuleks esitada täiendava analüüsi aruanne. Lõpetuseks tuleks enne lõpliku otsuse langetamist viia läbi kava täielik sotsiaalse tasuvuse analüüs. 46  Joonis 2. Olulise projekti hindamine Variantide Variantide Eelistatud variandi Täielik hinnang koostamine väljatöötamine välja valimine •Sotsiaalne •Kõrgetasemeline •Variantide •Valiku tasuvus eesmärk on filtreerimine kriteeriumite ja •Seos peamiste saavutatud •Kahe või kolme protsessi aruanne kõrgetasemeliste •Projekti parima varianti eesmärkidega määratlemine ja välja valimine hindamine Igas protsessi etapis tuleb arvestada iga variandi ja kava elluviimiseks vajalikku eelarvet ja muid piiranguid. Selle eesmärk on julgustada otsuste langetajaid seadma prioriteete ning kaaluma kavasse kuuluvate probleemide ja lahenduste konkureerivaid nõudeid. Hindamise viimases etapis on oluline välja töötada terviklik analüüs, mis on seotud transpordisektorile seatud kõrgetasemeliste eesmärkidega. Analüüsi koostamiseks kasutatakse tasuvusanalüüsi, kvantitatiivsete ja kvalitatiivsete meetodite kombinatsiooni. Paljud Euroopa riigid järgivad seda neljaastmelist lähenemisviisi. Variandid töötatakse välja riigi poliitilise raskuspunkti alusel. Näiteks Ühendkuningriik on välja töötanud keerukama viieastmelise mudeli (HM Treasury, 2018), mis hindab kavasid nende strateegilise tähtsuse, majanduslikku analüüsi, finantsanalüüsi, juhtimisanalüüsi ja ärianalüüsi alusel. Neist kaks viimast ulatuvad eespool kirjeldatud protsessist kaugemale ja võtavad arvesse projekti teostamise viisi ning erasektori potentsiaalset rolli, näiteks erarahastamise kaasamisel. Eesti mudelis tuleb arvestada riigi poliitiliste prioriteetide ning Euroopa Liidu ja teiste väliste poolte rahastatavate projektidega; tuleb määratleda Eesti huvid ja eraldada need rahvusvahelise suunitlusega eesmärkidest. Analüüsitulemusi tutvustav ühe- või kaheleheküljeline hindamiskokkuvõte peaks otsuse langetaja jaoks kajastama piisavalt nii majanduslikke kui ka laiemaid poliitilisi küsimusi. Selle jaoks ei piisa projekti rahalise puhasväärtuse ühe rahalise näitaja arvutamisest. Esile tuleks tuua kaasnevad kasumid, kahjumid ja kompromissid. Protsessi kavandamisel tuleks pidada silmas proportsionaalsust. Kui see on liiga keeruline või koormav, ei täida see eesmärki. Selline protsess, kus liigutakse kõrgetasemelise probleemi tuvastamisest erinevate võimalike lahendusteni, mille seast valitakse välja mõned eelistatud variandid, mis omakorda järjestatakse eelarve ja muude piirangute kontekstis, on tõhus vaid siis, kui see on seotud ametliku heakskiiduraamistikuga. Igas etapis peaks olema punkt, milles poliitikakujundajad ja ametnikud lepivad kokku kava arendamise järgmises etapis. Analüütikute meeskonna mõju suurendamine 47 Eestis puutuvad analüütikud otsuste langetajatega väga vähe kokku. See takistab neil nägemast, kuivõrd palju saab hästi läbiviidud majandusanalüüs poliitika kujundamisele kaasa aidata. Analüütikute ja kõrgemate poliitikaametnike tihedam integratsioon oleks üks viis, millega analüüsi rolli aktsepteeritumaks muuta. Ametnikud peaksid tagama, et majandusanalüüsi roll moodustab osa ministritega peetavatest aruteludest. Analüüsi olulisemaks muutmine, et sellest saaks otsuste langetamise oluline osa, suurendab valitsuses ja selle ametites majandus- ja mudelianalüütikute mõjuvõimu. Valitsusesiseselt tuleks ilma liigseid ettekirjutusi tegemata üle vaadata, kes millega ja kus valitsuse struktuuris tegeleb. Ühendkuningriigis muudeti põhjalikult analüüsi staatust palju aastaid tagasi, kui loodi kõrgema astme ametikoht ja transpordiministeeriumis määrati ametisse transpordi peaökonomist, kellel on otsene ühendus ministritega, selged kohustused ja vabadus ise oma meeskonda kokku panna. Transpordivaldkonna peaanalüütiku esimene oluline nõue on arendada kohapealset võimekust ja ekspertteadmisi valitsuse ja asutuse tasandil. Otsustusprotsesside reformimiseks ja analüütikutele rohkemate vahendite andmiseks on vaja suurendada modelleerimiseks ja hindamiseks eraldatud ressursside hulka. Seda on vaja nii valitsuse tasandil tehtava poliitilise töö jaoks kui selleks, et tegutseda aruka kliendina tarneahelas konsultantide ja muude esindajate tehtavas töös. Seetõttu ei ole soovitatav kasutada väliseid eksperte. Eesti on väike riik ning sarnaselt teistele väikeriikidele on seisab see silmitsi katsumusega tagada, et erialainimesed on tipptasemel valdkonda puudutavate teadmistega kursis ja hoiavad neid alal. Uus- Meremaa on näiteks üks väikeriik, mis osaleb Austraalias ametnike koolitusvõrgustikes „auliikmena“. Tsiviilehituse teadmiste jagamise võrgustikud on Põhjamaades juba olemas ning neid saaks ka laiendada transpordi modelleerimisele ja hindamisele. ITF oleks selle idee väljatöötamiseks hea valik. Kaaluda võiks akadeemiliste sidemete ärakasutamist. Selle abil saaksid Eesti transpordivaldkonna spetsialistid puutuda lähemalt kokku probleemidega, millega tegeletakse muudes Skandinaavia osades, ning meetoditega, mida kasutatakse analüüsiks ja poliitika kujundamiseks. Sellise võrgustiku üks eesmärk oleks anda Eesti ametnikele juurdepääs ekspertidele, kelle teadmisi saaksid kasutada ära kohapealsed erialainimesed – eriti transpordivaldkondades – kui on vaja erialateadmisi ja kogemusi. Eesmärk on tagada järjepidevam koostöö kui ühekordsete konsultatsiooniprojektide puhul. Kogu majandusanalüüsi ja modelleerimise kohapeal tegemine ei ole ei tõhus ega usaldusväärne. Vaja on erialateadmistega konsultante. Teine edukas näide Uus-Meremaalt on, et neil on õnnestunud arendada ja säilitada üsna väikest hulka kohalikke konsultante, kellel on teatud valdkondades esmaklassilised teadmised. Üks uurimistöö käigus intervjueeritud kohalik konsultant töötas välja Tallinna trammiliinide laienduste mudelit. Soovitame kindlasti kohaliku/piirkondliku tarneahela loomist. Selliste rahvusvaheliste projektide nagu Rail Balticu puhul kaasatakse aga kindlasti rahvusvahelisi konsultante ning siin on oluline töötada välja piisav hulk tõendeid ja kohapealne võimekus, et Eesti suudaks olla pädev klient ning panustada projekti nii integreeritud viisil kui võimalik. Selles osas võivad abiks olla mõned järgmises jaotises toodud soovitused. Modelleerimise ja hindamise süsteemse lähenemisviisi väljatöötamine Siin jaotises antakse soovitusi analüüsivahendite kogumiku väljatöötamiseks. Need ei ole järjestatud olulisuse alusel, vaid lähevad strateegilisematest taktikalisemateks. Modelleerimise ja hindamise tööriistade hierarhia on oluline, kuna üks lahendus ei sobi kõigile probleemidele. Erinevate etappide läbimisel alates poliitika variantide hindamisest kuni eelistatud variandi kavandamise ja määratlemiseni tuleks pidada kinni eelnevalt väljapakutud otsuste langetamise raamistikust. 48 Kõrgetasemelise poliitilise variandi leidmine ja hindamine: kõrgetasemeline töövahend, millega saaks koostada poliitikate kavandamiseks vajalikke transpordiprognoose ning tuua välja erinevate projektide jaoks vajalikud kompromissid, suudaks ületada lõhe strateegilise poliitika koostamise ja projekti tasandi vahel. Tegu võib olla üsna lihtsa paindlikkuse mudeliga, mida on kohandatud ajalooliste tõendite põhjal ning milles kasutatakse väliseid muutujaid nagu rahvastik, SKT inimese kohta, auto omamine ja kütuse hind koos asjaomaseid paindlikkustegureid puudutavate parimate tõenditega. Sellele tuleks lisada kokkulepitud eeldused väliste muutujate suundumuste kohta ning võimalus tundlikkuse testimiseks. Esialgset tööd saaks teha riiklikul tasandil või piirkonnatüüpide, näiteks linn, alev, maapiirkond, lihtsa tüpoloogia põhjal. Selle töövahendi arvutused ei tohiks olla liiga keerukad ning seda peaksid suutma kasutada inimesed, kes oskavad koostada arvutustabelit. Lisaks peaks see olema võimeline järk-järgult arenema. Algselt oleks peamine eesmärk anda ülevaade transpordivaldkonna vajaduste suundumustest ja võimaldada hinnata nende ühilduvust süsiniku ja muude eesmärkidega. Teine kasutusvõimalus oleks esitada kasvutegureid projekti tasandil kasutamiseks. Kohalike andmete puudumisel tuleks tarvitusele võtta võrreldavate riikide analüütikute kasutatavad väärtused. Teises etapis kasutataks rohkem ära geograafiat, et siduda mudelisse ummikute ja maakasutuse tagasisidet. Selle jaoks oleks vaja tsoneerimissüsteemi ja põhivõrgustikku, milles on esitatud läbilaskevõime ning kiiruse ja voo vahelised suhted. Need kaks etappi koos annaksid arusaama riigi mudelist. Täpsemini väljatöötatud projektitsükkel – projekti variantide väljaselgitamine: teine soovitus on välja töötada ametlikum projektitsükkel, milles analüüs on osa peamistest etappidest. Selle eesmärk on tagada, et analüüs ja tõendite kogumine eelnevad poliitilistele otsustele ja annavad nende langetamiseks vajalikku teavet. Kapitaliskeemides aitab varajases etapis tehtava sõelumisvahendi väljatöötamine luua kriteeriumide kogumikku, mille abil valida välja täpsemat hindamist väärivad projektid. See vahend kasutaks saadaolevaid indikaatoreid nagu mahu ja läbilaskevõime suhe, kiiruse tõendid, õnnetuste ajalugu jne. Hästi läbimõeldud töövahend soodustab ametnike ja otsuste langetajate vahelist arutelu prioriteetide, tõenäoliste tulemuste, vastastikuste sõltuvuste ja piirangute üle. Selle vahendi abil saab muuta analüüsi rolli juba tehtud otsuste õigustajast otsuse langetajatele kavasse kuuluvate variantide kohta teabe andjaks. See vahend on tõenäoliselt tõhusam, kui selle abil leitud teavet hästi esitatakse. Poliitikakujundajad peavad saama aru, miks see aitab neil otsuseid teha. Vaja on ametlikku nõuet sellise protsessi kasutuselevõtuks ning nende punktide määratlemiseks, kus langetatakse otsuseid projektide vormistamisel, variantide hulga koondamisel, soovituslike vahendite eraldamisel ja täpsema majanduslikusanalüüsi tegemisel. Otsuste langetajatele variantide kohta teabe andmine: majandusliku hinnangu väljund on kasu ja kulude suhe. Ehkki see suhe peaks olema üks olulisemaid näitajaid otsuste langetamisel, ei ole see iseenesest otsus. Selle põhjal ei tohiks eeldada, et kõik projektid, mille tulud ületavad kulusid, tuleb heaks kiita. Tõenäoliselt on rohkem neid projekte, mille tulud on kuludega võrdsed või neid ületavad ning mida saab eraldada eelarvest või hankida ettenähtud aja jooksul. Sellisteks puhkudeks võib olla vajalik määrata soovituslik miinimumpiir, et madalama väärtusega pakkumisi välistada. Teiseks ei ole sobilike variantide loendisse kuuluvaid kavasid võimalik otseselt üksteisega võrrelda. Näiteks on võimalik, et raudteekava kulude ja tulude analüüsis ei arvestata teatud tuludega, näiteks sellega, et uued rongid on reisijate jaoks mugavamad, kui puuduvad tõendid reisijate valmisoleku kohta parema kvaliteedi eest maksta. Mitte kõiki keskkonnamõjusid pole võimalik rahaliselt hinnata. Poliitiliste eesmärkide saavutamiseks võib olla kasulik kaaluda ka sotsiaalset ja ruumilist võrdsust. Näiteks võivad otsuste langetajad mõne piirkonna taaselustamise huvides kaaluda maanteekava, mis keskendub riigi mahajäänud piirkonnale, isegi kui hindamise käigus leitakse, et liiklejate jaoks oleks kasulikum investeerida jõukamasse piirkonda. Tasuvusanalüüs võib anda otsuste langetamiseks vajalikku teavet ning 49 tuua välja mõõtmata jäänud tulude väärtused, millele viitab otsuse langetaja valmisolek kaaluda väiksema tulude ja kulude suhtega kava. Kujutage näiteks ette, et minister soovib kiita heaks riigi mahajäänud osale suunatud maanteekava, mille tulud olid ainult 20% suuremad kui kavaga seotud kulud (tulude ja kulude suhe 1,20: 1) võrreldes jõukama piirkonnaga, kus võrreldavad kulud ja tulud on 50% suuremad (kasu ja kulude suhe 1,50: 1). Selline otsus viitaks, et otsuste langetajad on valmis kulutama 25% rohkem (1,5/1,2), et tuua kasu riigi mahajäänud osa liiklejatele võrreldes sellega, mida nad kulutaksid mujal. Siin olukorras saaksid analüütikud anda otsuste langetajatele täiendavaid suuniseid, viidates tõenditele alternatiivsete ja tõhusamate viiside kohta eesmärkide täitmiseks, näiteks vähendades piikondlikke ebavõrdsusi muul moel. Sarnaste tehnikatega saab hankida ka tulude kaudseid väärtusi, näiteks rongireisijate mugavus, mis ei pruugi kuuluda kvantifitseeritud majandushinnangusse. Eelnevalt mainitud hindamise kokkuvõte on oluline teabeallikas, millega otsuste langetajad arvestama peavad. Transpordiministeeriumi transpordivaldkonna peaökonomist peaks vastutama selle eest, et otsuste langetajad teavad, millised kompromissid on vajalikud, kui nad erinevate kavade heakskiitmist kaaluvad. Lisaks peaks transpordivaldkonna peaökonomist koostama otsuste ja põhjenduste registri, et aja jooksul suurendada otsustevahelist järjepidevust. Ministrid ja nende ametnikud peaksid otsustama, kas avaldada iga otsuse aluseks olnud analüüsi. Iga eraldiseisva ärianalüüsi avaldamisega enne, kui protsessist on aastate jooksul saanud väljakujunenud meetod, kaasneb teatavaid probleeme. Valitsus peaks aga igal aastal avaldama heakskiidetud projektide hinna ja kvaliteedi suhte näitaja, võttes arvesse selle aasta projektide kava kulude ja tulude suhet ning koondades eraldiseisvate projektide tulemused kokku. Sellele näitajale tuleks lisada lühike märkus, millega selgitatakse otsuste langetamise protsessi (nagu kirjeldati eelnevalt punktis „Analüüsi tegemine enne otsuse langetamist“). See aitab suurendada valitsuse otsuste langetamise usaldusväärsust. Lõplik kinnitusetapp – modelleerimine: peamises linnadevahelises maanteede võrgustikus puudub detailne marsruutide valik. Kui see on õige, on peamine probleem kava alternatiivide, sealhulgas nende ristmike kujutamine ja modelleerimine. On võimalik, et ülalkirjeldatud põhivõrgustikku saab töötada välja tasemel, mis võimaldaks mudelil kujutada alternatiivset läbilaskevõimet ja paigutust. Teise võimalusena võib koostada kohalikke mudeleid. Igal juhul on usaldusväärse analüüsi jaoks vaja kvaliteetseid põhiandmeid. Levinud kogemuse kohaselt ei pruugi mudelianalüüsi parimad vahendid, näiteks koondatud määramismudelid, olla alati parim valik sidusrühmadele ja otsuste langetajatele teabe edastamiseks ja tutvustamiseks. Selleks, et näitlikustada selliseid variante nagu neljarealise maanteevõrgu osa eelised kaherealise või kaks-pluss-ühe sõidurea ees võivad olla väga kasulikud mikrosimulatsioonimudelid, millega näidata alternatiivsete variantide soorituse erinevusi. Kasutada tuleks selliseid vahendeid ja meetodeid, mis aitaksid otsuste langetajatel mõista, mida mõni variant pakkuda suudab, ja soodustada vestlust kava prioriteetide ning hinna ja kvaliteedi suhte osas. Maanteehooldus: selliste modelleerimisvahendite nagu maanteede arenduse ja hooldusmudelite kasutamine võib anda teavet maanteehooldust puudutavate otsuste langetamiseks. See aitaks tagada, et otsuste langetajad on teadlikud, millised tulemused on rahastuse jaotamisel kapitali ja hoolduseelarvete vahel. Neid vahendeid tuleks kasutada osana ITFi soovitatud süsteemsest lähenemisviisist. Järelhindamine: projekti elluviimist ja selle avamisjärgset sooritust tuleks hinnata sageli. Kava eest vastutav amet peaks eelnevalt kirjeldatud etapipõhist modelleerimise, hindamise ja otsuste langetamise protsessi kasutades koguma teatud minimaalseid andmeid pärast projekti lõppu ja mõned aastad pärast avamist. Nõutud peaksid olema andmed kapitalikulude ja täitmiskuupäevade kohta, et koguda teavet edasiste täitmisriske puudutavate otsuste langetamiseks. Lisaks peaks amet vastutama hindamise peamiste tulemuste, näiteks liiklusvoogude, õnnetuste määrade ja teenusetaseme andmete kogumise eest. 50 Modelleerimise ja hindamismeetodite parandamiseks tuleks kasutada tegeliku ja prognoositud soorituse võrdlust. Näiteid järelanalüüsi jaoks vajalike asjakohaste võrdluspunktide kohta projekti eluea jooksul võib leida ITFi varasemast tööst (ITF, 2017; ITF, 2018). Analüüsi audit: mitmes riigis kasutatakse analüüsi tugevdamiseks kulude ja tulude hindamise meetodite, eelduste ja tulemuste auditit, mida rakendatakse kas kõigile teatud piirväärtust ületavatele kavadele või nende valimile. Suurbritannias viib küll auditi läbi transpordiosakond, aga selle töörühm, mille ülesanne on enne rahastusministeeriumilt rahastuse kinnituse küsimist siseprobleeme välja tuua. Norras täidab seda rolli Oslo ülikooli transpordiökonoomika instituut. Mõnes teises riigis vastutab läbivaatamisprotsessi eest rahandusministeerium, mis nõuab kõigile suurematele teatavat läve ületavatele kavadele sõltumatut auditit. Üks selline näide on Slovakkia. Me ei jõudnud seisukohale, kuidas täita heakskiitmisele eelneva siseauditi ülesandeid kõige paremini väikeses riigis. Eesti jaoks oleks üks võimalus kirjutada auditi eelarve projekti sisse, ent lasta seda hankida ja läbi viia rahandusministeeriumil, et nõuetekohast sõltumatust tagada. Teine võimalus on anda see roll Eesti Taristule, uuele valdkondadeülesele asutusele, mille loomise ettepaneku tegime oma transpordisektori asutuste ülesehituse ülevaates. Järjepidev hindamisraamistik, meetodid ja väärtused: Eestil on soovitatav luua projekti tasandil ühine hindamisraamistik, mis hõlmab algselt majanduslikke, keskkonnaalaseid ja rahalisi kaalutlusi. See raamistik peaks koosnema elementidest, mida saab rahaliselt hinnata ja füüsilises mõttes kvantifitseerida ning mis on oma olemuselt kvalitatiivsed, näiteks mõju bioloogilisele mitmekesisusele või rahvuspärandile. Raamistik peaks olema paindlik ning seda tuleks kasutada proportsionaalselt ja järjekindlalt kõigis investeeringu hindamise analüüsides. Tuleks välja töötada töövihik, milles kirjeldatakse raamistiku lähenemisviisi ennast ning selle raamistikuga seonduvate levinud probleemidega toimetulekut. Need ulatuvad sellistest riiklikest küsimustest nagu hindamisperiood ja allahindluse määr, ebakindlusega toimetulek ja väärtuse ühik valdkonnaspetsiifiliste probleemideni nagu põhjustatud liiklustiheduse suurenemisega toimetulek, kaudne kütuse maksustamine jne. Eesti valitsus võiks lasta selle töövihiku välisel sõltumatul asutusel läbi vaadata veendumaks, et see sisaldab kehtivaid parimaid tavasid. Lähitulevikus piisab tulude ülekandemeetodist, et kasutada ära mujal tehtud teadustööd, millest on võimalik hankida Eesti sissetuleku tasemele kohandatud väärtusi. See nõuab eeldusi peamiste muutujate, näiteks sõiduaja säästu väärtuste sissetuleku elastsuse kohta aegrea jooksul. Sellise suurusega riigi jaoks on esmatähtis siiski välja töötada mujalt pärit usaldusväärsete väärtuste kogum. Kui need osutuvad väga vastuoluliseks või poliitikavaldkonna suhtes tundlikeks, saab neid hiljem kohapealsete uuringute põhjal täpsustada. Selle valdkonna jaoks on väga hea allikas HEATCO uuring (IER Stuttgart, 2005) ning sellega seotud Shiresi ja de Jongi artikkel (2006). Linnatranspordi hinnang: Tallinna linna ja selle ümbruse kavade hindamisele tuleb läheneda teistmoodi, kuna seal on mõistlik kasutada transpordiliikide ülest lähenemisviisi ning kasutada sisuliselt fikseeritud nõudlust koos eksogeense kasvuga, kuna:  endiselt puuduvad mudelid jalgsi, rattaga, trammiga, bussiga ja võimalik, et ka rongiga liikumise kohta  esindatud peavad olema sellised aspektid nagu parkimine  tõenäoliselt on olulised nii laia ala ümbersuunamisest kui ka sõitude ümberjaotamisest tulenev liiklus  olulised on muutused maakasutuses ning nende vastastikune seos transpordimuutustega. 51 Uurimise tulemusel leiti, et linnapiirkonnas on nii elukoha kui töökoha hajutamiseks olulisi ajendeid, mis mõjutavad kogu linnaplaneerimist. On ebatõenäoline, et ülaltoodud kujul esitatud riiklik mudel (punkt „Modelleerimise ja hindamise süsteemse lähenemisviisi väljatöötamine“) neid aspekte sisaldab. Vajalik on linnapiirkonna mudel. Tallinna trammiliinide laienduse muljetavaldav modelleerimistöö esitlus on näide olukorrast, kus tulevikus saaks kasutada olemasoleva mudeli täiendamist parema transpordi ja maakasutuse vahelise suhte kujutamisega. Suured väliselt juhitud projektid – rahvusvaheline, erasektor: näited selle kategooria projektidest on Rail Baltic ning tagasilükatud Helsingi-Tallinna tunnel. Olenemata sellest, kas küsitakse planeeringu heakskiitmist või riiklikku rahastust, peaks Eesti valitsus tegutsema rahva nimel, et hinnata, mis on riiklikes huvides. See ulatub kulude ja tulude hindamisest kaugemale palju suuremate regionaalpoliitika ja planeerimissüsteemiga seotud probleemideni. Hindamise vaatenurgast lähtudes tuleks sellistele projektele läheneda aga samamoodi nagu siseriiklikele transpordiprojektidele, st kaaludes nende sotsiaalset tulusust Eestile. 2.3. Taristuvaldkonna hanked Igal aastal hangivad Eesti Maanteeamet ja muud transporditaristu ettevõtjad erasektorilt sadu miljoneid eurosid taristu ja sellega seotud teenuste jaoks. 2019. aastal oli see umbes 300 miljonit eurot, kui Euroopa Liidu kaasrahastust mitte arvestada 10 (MKM, 2020). Hankeprotsessi tõhusus paneb olulisel määral paika, kuivõrd on võimalik tagada parimat hinna ja kvaliteedi suhet. Rahvusvahelise Transpordifoorumi (ITF) ülesanne oli uurida 1) kuidas on Eestis taristu hanked korraldatud, 2) kuidas lähenevad Eesti transpordisektori taristuettevõtjad projektide elluviimisel peamistele hankevalikutele ja 3) milline on Eesti lähenemisviis kohapealse hankesuutlikkuse ja pädevuse arendamisele. Selle punkti juures tuleb võtta ka arvesse punkte 2.1 „Asutuste struktuur“ ning 2.4 „Taristu rahastamine ja erarahastuse roll“. Rahvusvahelise Valuutafondi (IMF) hiljutist ülevaadet avaliku sektori investeeringute juhtimise süsteemi hindamise kohta (Public Investment Management Assessment, PIMA) võiks võtta kvaliteetse abilisena hangetega seotud küsimustes. Taristus erainvesteeringute kasutamist käsitletakse punktis 2.4 „Taristu rahastamine ja erarahastuse roll“. Selles jaotises vaadeldakse, millised muud asutused või rollid toetavad taristuettevõtjate hankeülesannete täitmist. Uuritakse, millist lähenemisviisi kasutavad Eesti taristuettevõtjad projektide hangetes, näiteks pakkujate valimise protsess, lepingu ulatus ja rakendamismudelid ning maksesüsteemi valik. See hõlmab ka seda, kuidas hankija suhtleb turuga, et teavet anda või saada. Lõpetuseks on hanketegevuse tõhusaks läbiviimiseks vaja pädevaid töötajaid. Seega uuritakse selles jaotises ka Eesti edusamme hanketegevuse professionaalsemaks muutmisel. Põhiprobleemid Eesti on kehtestanud kindlad alused transporditaristu ja sellega seotud teenuste hankimiseks. ELi direktiivid on täielikult vastu võetud: loodi e-hangete süsteem ja pakkujate kaebuste käsitlemiseks apellatsiooniasutus ning Rahandusministeeriumi alla kuuluv hankeosakond toimib tehniliste vahendite keskusena, mis nõustab avalikku sektorit hangete korraldamisel. IMFi PIMAs hinnati Eesti projektide elluviimist suhteliselt heaks. Sama kehtib ka Euroopa Komisjoni tulemusnäitajate kohta, ehkki need pole selle analüüsi jaoks nii kasulikud, kuna käsitlevad riigihankeid tervikuna ega erista taristut ja transporti. Üksikasjalikumas ülevaates sellest, kuidas Eestis avaliku sektori kliendid hankeotsuste jaoks teavet saavad, toodi välja mitu valdkonda, kus oleks võimalik teha märkimisväärseid parandusi. 52 Puudub taristuvaldkonna ühikuhindade andmebaas Kuluprognoosid mängivad olulist rolli kogu projekti väljatöötamise jooksul alates projekti loomisest kuni elluviimiseni. Varastes etappides saab projekti ülesandel põhinevat kulude prognoosi kasutada tasuvusanalüüsis. Hiljem kasutatakse rohkem edasiarendatud projekti kavandil põhinevaid kuluprognoose selleks, et määrata baashinda (ettevõttesisese eelarve ülempiiri) ja hinnangulist pakkumust, mille saab pakkujatele avaldada. Ühikuhindade andmebaas kogub pakkujate esitatud pakkumustest teavet (betooni, terase jms kuupmeetri hind). Seda saab kasutada erinevates projektietappides erinevatel viisidel. See annab otsest teavet kuluprognoosi koostamiseks, kui kavand on piisavalt küps, et on võimalik koguseid prognoosida11. Praegu tuginevad Eesti taristuettevõtjad (Maanteeamet, Eesti Raudtee jne) sihtotstarbelisele teabele ja osalistele andmebaasidele, mis on projekti kavandajate endi käsutuses. Ühikuhinna andmebaasi puudumine võib vähendada esialgsete kuluprognooside usaldusväärsust ning tasuvusanalüüsi tulemused, nagu ka piirhind ja pakkumuse prognoos, on kallutatud. Need eelarvamused võivad mõjutada mitte ainult tasuvusanalüüsi, vaid ka hanke tulemusi. Kennedy et al. (2018) toob näiteks välja, et pakkumuse prognoos võib olla oluline hinnasignaal turule, tuues kaasa kuni 10% madalamad pakkumused. Ilma ühikuhindade andmebaasita seisavad hankijad silmitsi tõsise katsumusega, kui nad üritavad välja selgitada, kas taristu hinnad on liiga kõrged ja kas see võib osutuda probleemiks tõhusa konkurentsi tagamisel või kas mõni pakkumus on ebaharilikult madal. Eestis on taristuvaldkonna hangetes negatiivsed ülekulud ning see ei viita tõhususele. ITFi maanteesektori lepinguliste kulude täitmise hetkeseisu analüüsis leitakse, et Eesti võib rahvusvahelistest empiirilistest tõenditest kõrvale kalduda. Analüüsis käsitleti üksnes lõpetatud projekte, mitte raamlepinguid, ja eeldati, et andmed on õigesti kantud riigihangete registrisse. On oluline märkida, et mõned olulised andmed olid suures osas puudu, näiteks eeldatav pakkumuse väärtus. Selle analüüsi kaks tulemust on muret tekitavad. Esiteks oli nende enam kui 1 miljoni euro suuruse mahuga projektide seas, mille hinnanguline pakkumuse väärtus oli saadaval12, 13 projekti lepingu maksumus 25st hinnangulise pakkumuse väärtusega võrdne, ehkki vaid neljal neist juhtudest oli üks pakkuja. See võib viidata konkurentsivastasele käitumisele. Kui oleks esinenud mingitki konkurentsi, oleks hind olnud kõike muud kui täpselt sama. Teiseks esines pärast lepingute allkirjastamist kulutõhususe osas kogu lepingute portfellis süsteemseid alakulusid. Keskmiselt on rohkem kui 1 miljoni euro väärtuste projektide lõplikud lepingulised kulutused 13% lepingu maksumusest madalamad. Joonis 3 kujutab lepingu kulutõhusust ning sellest ilmneb selgelt, et ülekulud on äärmiselt piiratud või kärbitud 53  Joonis 3. Lõppväärtus vs. lepingu sõlmimise hind; lepingu väärtused > miljon eurot; 2007–2017 perioodi maanteelepingud 70 60 50 Sagedus 40 30 20 10 0 50% 60% 70% 80% 90% 95% 100% 105% 110% 115% 120% Lõppmaksumus protsendina võitnud pakkumusest (100% = eelarves) Allikas: algandmed saadi Eesti riigihangete registrist13. Dokumendis ITF, 2018a leiti, et maanteede süsteemne kulude ületuse määr on kuni 9%. Enamik sellise sooritusega lepinguid on hangitud kõige madalamal hinnal põhineva konkursi alusel, kus kasutatakse traditsioonilist meetodit ja kus hind määratakse töömahu põhjal. Töömaht on hinnanguline, seega ei saa ka mõistagi projektide elluviimiseks vajalikud kogused olla täpsed. Eraldiseisvates projektides toimub mõnikord ülehindamist ja mõnikord alahindamist. Üldisel tasandil toimub aga süsteemne alahindamine, kuna avaliku sektori kliendid ja kavandajad ei suuda täielikult ette näha kõiki ülesandeid, mida on vaja avaliku sektori kliendi vajaduste väljaselgitamiseks. Uurijad arutlevad endiselt algpõhjuste üle (Flyvbjerg et al., 2019). Eesti puhul on aga ilmne, et väga suur osa lepingutest viiakse täide kas täpselt eelarve piires või märkimisväärselt alla selle. Selle peamine põhjus näib olevat Eestis levinud lähenemisviis lepingute sõlmimisele. Lepingud on töömahul põhinevad traditsioonilised lepingud, kuid kehtestatud on 5% suurune reserv ettenägematute tööde jaoks ning selle kasutamise tingimused määratletakse lepingus. Näib, et eesmärk oli piirata ehitustööde kulude suurenemist ja lisasid. See ülempiir jätab töövõtjatele mõningast ruumi riskide jagamiseks. Sisuliselt muudab see aga lepingud sarnasemaks põhisummaga lepingutele. Kui kõnealused tööd ei ole just äärmiselt lihtsad ning puuduvad küsimused tegelike koguste või vajaliku mahu kohta, on põhisummaga lepingud ülemäära kallid (nt Bolotnyy and Vasserman, 2019). Veel üks võimalik murekoht on ülehinnatud lepingute märkimisväärne osakaal, mis on vähemalt osaliselt selgitatav asjaoluga, et riigihangete registris toodud lepingu sõlmimise väärtus sisaldab juba 5% ettenägematute kulude reservi. Nende tulemuste täpsed põhjused nõuavad põhjalikku analüüsi. Sellele vaatamata viitavad ülaltoodud tulemused koos vaidlustatud pakkumuste äärmiselt madala taseme ja praktiliselt olematu kaebuste hulgaga Eesti võistluspakkumuste ebatõhusale korraldamisele ning seega avaliku sektori kulutuste ebapiisavale hinna ja kvaliteedi suhtele. Järelanalüüs ja riigihangete register on väärtuslikud, kuid liialt vähe kasutatavad vahendid PIMA kohaselt tehakse järelanalüüse Euroopa Liidu rahastusega projektidele ja mõnedele suurematele riigi rahastusega projektidele. ITFi ja Eesti transporditaristu hangetega tegelevate ettevõtete vahelistest aruteludest selgus, et hanke tulemustele tehakse harva järelanalüüsi. 54 Riigihangete register sisaldab mitmesugust teavet üksikute pakkumuste kohta, kuid sellest on jäetud välja olulised andmepunktid, mis võimaldaksid pakkumuse või lepingu täitmist tõhusamalt analüüsida. Tähelepanu keskmes on pakkujate valikumenetlus ning selles ei anta teavet lepingute muude aspektide kohta. Näiteks puudub teave projektis kasutatava elluviimismudeli või maksesüsteemi kohta. Enamik Eesti projekte toetub küll ühele vormingule (traditsiooniline leping ning maksesüsteem põhineb tööde mahul), ent see peaks arenenumate riikide suundumusi järgides aja jooksul muutuma. Ehkki andmebaasis on saadaval lepingu sihtotstarbe kirjeldus, ei võimalda see otseselt kokku liita erinevat liiki ja erinevate riskiprofiilidega töid. Kehtiv hooldusleping ei ole sama mis taastamistööde teostamine ja mahajäetud tööstusalade ehitusprojekt pole võrreldav hoonestamata ala projektiga. Transpordiliikide vahel puudub hanke kulgemise kooskõlastus. Riigihanked võivad turul oluliselt nõudlust suunata. Kui varustajad ei suuda tõhusalt oma töövõimet kavandada või neile mõjuvad väliste tegurite, riigi või mõlema põhjustatud nõudluse šokid, siis hinnad kerkivad. Transporditaristu hangetega tegelevatel Eesti ettevõtetel on tulevikku suunatud hankekava, mis on nende sõnul võrdlemisi täpne, kui planeerida ette kuni ühe aasta võrra. Puudub struktureeritud protsess või platvorm, mille kaudu ametivõimud saaksid oma hankekavasid kooskõlastada. Eelseisev Rail Balticu hanketsükkel võib oluliselt mõjutada Eesti turul valitsevat olukorda. Ehkki Rail Balticu lepingud on eeldatavasti suurema mahuga kui seni Eestis hangitud taristulepingud, võidakse alltöövõtjatena kaasata ka Eesti ettevõtteid ja ka vajalikke materjale võidakse kohalikult tarnida. Puudusid tõendid transpordi ja muude taristuvaldkondade hangete kooskõlastamise kohta. Puuduvad hankejuhiseid peale nende, mis puudutavad pakkujate valikut. ELi direktiivid keskenduvad peamiselt pakkujate valimise protsessile. Neis ei sisaldu juhiseid muude hankestrateegia oluliste aspektide kohta nagu valmistamis- või ostuotsus, suuremate projektide lepingu ulatuse määramine14 ja elluviimismudel15 ning lepingu maksesüsteemi ja muude stiimulite valik. Enamikus ELi riikides puuduvad hetkel suunised, mis puudutaksid muid hankestrateegia otsuseid peale nende, mis on sätestatud ELi direktiivides. Eesti ei pea aga ootama. Nende suuniste puudumise tõttu langetatakse otsused kõigi teiste hankestrateegia aspektide kohta eksperdiarvamuse põhjal, mis ei saa olla hea alus süsteemselt hinna ja kvaliteedi suhte maksimeerimiseks, eriti kui saadaval on paremaid vahendeid või teadmisi. Praeguses Eesti taristuvaldkonna hangete tavas kasutatakse väga harva midagi muud kui traditsioonilist kõige madalamal pakkumusel põhinevat lepingut, mis põhineb tööde mahul. Ometi on umbes 46% Maanteeameti hangitavatest lepingutest suurema kui 5 miljoni eurose mahuga ja mõned suuremad kui 20 miljonit eurot. Selliste lepingute puhul võiks olla vaja teha täpsemat analüüsi, et koostada hinna ja kvaliteedi suhte maksimeerimiseks terviklik hankestrateegia. Rail Balticu-suguste projektide puhul on selliste meetodite kasutamine ülioluline. Järelikult ei paku praegune kohapealne tehniline tugi ehk rahandusministeeriumi alla kuuluv hankeosakond hangetega seotud küsimustes terviklikku tuge, vaid keskendub üksnes õigusaktide järgimisele. Hanketoimingud tuleb Eestis professionaalsemaks muuta. Eestis ei ole välja töötatud hankespetsialistide rollide maatriksit ega nende vajalikke pädevusi. Paljud valitsuse liikmed on sellest probleemist teadlikud, kuid operatiivmeetmeid pole kasutusele võetud. Kirjanduses (nt DeCarolis et al., 2018; Saussier ja Tirole, 2015) tuuakse välja töötajate rollide, võimete ja piisava pädevuse olulisust taristuhangete tõhusal läbiviimisel. Ebapiisavad võimed ja pädevus 55 hanketegevustes toovad kaasa halvemad hanketulemused ning avaldavad märkimisväärset mõju riigieelarvele. Rail Balticu riskianalüüsi leevendusmeetmeid pole veel täielikult juurutatud. Projekti kavandamise etapis läbiviidud Rail Balticu projekti Eesti osa (EY, 2017) riskianalüüsis tuvastati mitu riski. Kõik need moodustasid hanke osa või olid sellega seotud: projektijuhtimine, eelarve/kulude prognoosid ja hankestrateegia. Kaks ELi analüüsi kõige kõrgemal positsiooniga riski (keskmise mõju ja suure tõenäosuse järjestus), mis on ka praegu asjakohased, viitasid kuni 20% suurusele potentsiaalsele kulude ületuse määrale (260 miljonit eurot) ja kuni kolmeaastasele viivitusele. Eesti kontrollikoja aruandes märgiti, et riskijuhtimissüsteemi on kehtestanud Eesti rakendusasutus Rail Baltic Estonia (NAO, 2019b; lisa D). EY (2017) aruandes soovitatud kõrgetasemeliste riskide leevendamise meetmeid ei ole veel täielikult kasutusele võetud ja töö on alles pooleli. Projektijuhtimise osas soovitati järgida rahvusvahelisi parimaid tavasid ja luua ühtne projektijuhtimisorganisatsioon. Lisaks toodi muuhulgas välja, et oluline on koostada täielik hankestrateegia. Nende küsimustega ei ole veel täielikult tegeletud, ent edusamme on juba tehtud. Väga oluline aspekt, millele viidati hiljuti Eesti kontrollikoja aruandes (NAO, 2019a ja 2019b), on et projektidel pole poliitilise tahte puudumise tõttu „kõrgema hinna” stsenaariumit. Rahandusministeerium selgitas välja, et Eesti praegune eelarve suudab katta kuni 19% Eesti sissemaksest, mis on umbes 60 miljonit eurot ehk 4% Eesti sektsiooni 2017. aasta projekti kulude prognoosist. Ehkki 2017. aasta riskihindamise tulemusel ei koostatud riskiga kohandatud prognoosi, viitavad juba ainuüksi EY tuvastatud kaks peamist riski, et vaja oleks palju suuremat eelarve ettenägematute kulude reservi. Seda tüüpi ja ulatusega projektide puhul on tüüpiliseks peetud enam kui 40% suuremaid kulutusi võrreldes esialgse hinnanguga (Flyvbjerg, Skamris Holm ja Buhl, 2002). Nagu eelnevalt märgiti, on Rail Balticu leevendusmeetmete juurutamine juba käimas ning üksikasjaliku kava väljatöötamisega väheneb kulutuste ületamise risk. Sellele vaatamata võidakse projekti kulusid ületada ka siis, kui on välja töötatud üksikasjalik kavand. Praegu puudub aga Eesti eelarves rahuldav ettenägematute kulude reserv, mis suudaks katta märkimisväärseid ülekulusid. Sedalaadi hädaolukorrakavad peaksid eelarve kavandamise perioodist kaugemale ulatuma. Eesti eelarvestrateegia katab nelja-aastaseid perioode, ent Rail Balticu projekt kestab kauem. Reformi valdkonnad Ülaltoodu tõi välja suure hulga probleeme alates töötajate võimekusest ja korraldusest kuni kultuuri ja meetoditeni. Järgnevalt pakutakse välja laiaulatuslik reformide kogumik, millega hanketulemusi parandada. Luua kõigis avaliku sektori töödes kasutatav taristu ühikuhindade andmebaas Taristuprojekti hinnaprognoosi on võimalik koostada erineval viisil olenevalt soovitud täpsusest. Paljudes suurtes taristuprojektides kasutatav levinud lähenemisviis on hankida pakkumustest ühikuhinnad ja töödelda neid andmebaasis. Ehkki puudub süsteemne ülevaade selle kohta, millistel ametitel selline andmebaas on, kasutavad seda sageli maanteeametid või -ettevõtted ja muud sektorid (nt USA maanteeametid, Highways England, DARS Sloveenias, NDS Slovakkias jne). Parimal juhul peetakse kõigi avaliku sektori tööde ühikuhindade andmebaasi, mis ulatub transporditaristust kaugemale, nagu tehakse Belgias16. Taristu alamsegmendi ühikuhinnad võivad elamuehituse sektori hinnamuutustest märkimisväärselt erineda, mistõttu ei ole kontrollimata andmetel põhineva erasektori tarkvara kasutamine sobilik. ITFi 56 (2018a) dokument „Motorway cost review of Slovakia“ („Slovakkia kiirteede kulude ülevaade“) toob veel näiteid kulude prognoosimise rolli kohta. Juurutada taristuprojektidele süsteemset järelanalüüsi, kasutades riigihangete registrist saadud täiendavaid andmepunkte Järelanalüüs peaks hankeprotsessis olema tugevam ja süsteemsem. Ideaalis tuleks kõigile teatud märkimisväärset künnist ületavatele projektidele teha järelanalüüsi17. Hanke tulemusi tuleks käsitleda samas aruandes kui kulude ja tulude järelanalüüsi. Väiksemate projektide puhul võiks teha juhuslikke hanke soorituse teste ning võimalike esile kerkinud probleemide põhjuste analüüsi. Hankeaspektide toetamiseks peaks riigihangete register sisaldama mitut täiendavat andmepunkti projekti omaduste ja hanke tulemuste kohta. ITF (2018) soovitab projekti väljatöötamise käigus mitmes olulises punktis kuluprognoosid üles märkida. Kõige minimaalsemal tasemel tuleks registris eneses luua lepingute liigitus, et eristada tööde liike laias plaanis (hooldus, uuendamine, ehitus mahajäetud tööstusalal/hoonestamata alal). Lisaks tuleks kehtestada ja talletada pinnase keerukuse ja tööde raskusastme kvalifikatsioon18. Edasine laienemine sõltub sellest, kas Eesti soovib teha taristu füüsiliste üksuste kulude võrdlusanalüüsi, mis on küll äärmiselt soovitatav, kuid mida senini on teinud vaid vähesed riigid (nt Ühendkuningriik ja Austraalia). Lõppkokkuvõttes oleks aga võrdlusanalüüsi andmed äärmiselt olulised selleks, et taristu varahaldurite majandustegevust reguleeriv asutus saaks täita oma majanduse ja stiimulite reguleerimise ülesannet, nagu nähakse ette punktis 2.1 „Asutuste struktuur“. Selleks, et ükskõik milline neist uuendustest mõttekas oleks, peavad kasutajad riigihangete registri rolli austama. Eesti ametivõimud peavad tagama registrisse andmete kandmise kohustuslikkuse ja nõuete eiramisel tegelike tagajärgede rakendamise. Praeguses registris on ohtralt andmeid puudu: enamikul juhtudel olid suurema osa hankijate hinnangulised väärtused puudu. Analüüsida ehitusturgu ja kooskõlastada taristuhangete kavandamist kogu transpordisektoris ja sellest väljaspool Hetkel kavandavad Eesti taristu, ehituse ja nendega seotud teenuseid hankivad avaliku sektori kliendid tööde järjekordi, mis võimaldavad nende turusegmendil ehk tarnijatel oma tegevust kavandada ja vajadusel töövõimet kohandada. Valdkondadevaheline kooskõlastamine puudub. Sellise lähenemisviisi puhul eeldatakse, et igat avaliku sektori klienti teenindab ehitusturu segment, mis on ülejäänutest täielikult eraldatud, ning ühe sektori nõudluse suurenemine ei avalda mingit mõju teistele. See eeldus on ebarealistlik. Paljud ehitusettevõtted püüavad tegutseda mitmes sektoris, et vältida sõltumist vaid ühest tuluallikast. Lisaks nende kasutada üks ja sama ehitustööliste ning inseneride allikas. Ka sellised suurprojektid nagu Rail Baltic avaldaksid mõju ehitusmaterjalide tarnele. Rail Balticu projekti riskianalüüsiski (EY, 2017) tuuakse näiteks välja materjalide hinnatõusust põhjustatud märkimisväärne risk. Projekti ehitamiseks vajalik liiva ja kruusa keskmine nõudlus kahekordistub vahemikus 2020–2025. Mõistagi ei mõjuta see üksnes Rail Balticut vaid ka kõiki teisi sellesse perioodi jäävaid ehitusprojekte. Vaja on ehitusturu analüüsi, mis aitaks teha kindlaks, kuidas avaliku sektori nõudlus mõjutab Eesti ehitussektorit ja selle segmente. Üksused, mille nõudlus mõjutab samu segmente transpordisektoris ja sellest väljaspool, peaksid nõudlusest tingitud hinnatõusu vältimiseks oma kulutusi kooskõlastama. Selliste suurte projektide nagu Rail Balticu või teiste sektorite märkimisväärsete algatuste puhul peaks analüüsis sisalduma, millisel määral need Eesti ettevõtteid, ehitusmaterjalide tarnijaid ja tööjõudu mõjutavad. Uurida tuleks Eesti ettevõtete kaasamise ja teistele kohalikele turgudele (tööjõud, ehitusmaterjalid) avalduva mõju mitut stsenaariumi. 57 Viia läbi põhjalik analüüs lepingute täitmise põhjuste kohta Eesti transporditaristu hangetes ITFi kõrgetasemeline Eesti taristuhanke tulemuste analüüs tõi välja projektid, mille pakkumuse prognoos oli lepingu sõlmimise väärtusega võrdne. Lisaks avastati enam kui kümne aasta hankeandmetest süsteemsed enam kui 10% suurused alakulutused. Selle üks seletus on, et riigihangete registrisse kantud lepingu sõlmimise väärtus sisaldas 5% suurust reservi ettenägematute tööde jaoks, mida seal ei tohiks olla. Sellele vaatamata tehti maanteehangete hetkeolukorra kohta ülevaade, kuna selles valdkonnas on maailmas hanketavad kõige rohkem välja kujunenud. See viitab hankeprotsessi ühe või enama aspekti süsteemsetele puudujääkidele. Arvestades selle teema olulisust, kuna see vähendab paratamatult märkimisväärselt Eesti taristuvaldkonna kulutõhusust, peaks rahandusministeerium tellima taristuvaldkonna hankeprotsessi süvaanalüüsi. Selles ülevaates tuleks hinnata protsessi kvaliteeti, lepingu ülesehitust, tööde sisu, juhtimist ja järelevalvet ning muid aspekte, mida oluliseks peetakse. Lisaks peaks valitsus ülevaate ja selle järelduste usaldusväärsuse tagamiseks kasutama rahvusvaheliste selle valdkonna audiitorite (kellel on teadmised õiguse ja tsiviilehituse valdkonnas) teenuseid. Muuta taristuvaldkonna hanked professionaalseks Eesti on sellest probleemist küll teadlik, ent olulisi operatiivmeetmeid pole veel võetud. Euroopa Liit avaldas hiljuti soovitusi hanketoimingute professionaalsemaks muutmise kohta (EL, 2017). Ühendkuningriigis ja teistes riikides töötati välja standardid hankes osalevate inimeste rollide ja pädevuste, projektijuhtimise ning nendega seotud ülesannete kohta. Näitena võib tuua IPA (2018b) dokumendi „Project delivery capability framework for project delivery professionals in government“ („Projekti elluviimiseks vajaliku võimekuse raamistik valitsuse projektide elluviijatele“). Taristuvaldkonna hankejuhiseid peaksid ulatuma kaugemale pakkujate valiku küsimusest. Kui välja arvata ELi direktiivides sätestatud nõuded, ei arvesta praegu Eesti hankevaldkonna otsuste langetajad muude oluliste hanke aspektidega ning nende valikud ei põhine eksperthinnangutel. Valmistamis- või ostuotsus peegeldab riigi pikaajalist strateegiat selle osas, kus leida tasakaal kohapealsete võimete vahel. Näiteks tuleb kohapeal teha toimingud, mida on pidevalt vaja, ent mille jaoks pole turul tegelikku konkurentsi tekkinud. Äärmusliku näitena sõlmisid Tallinna linnavõimud hiljuti kolmanda järjestikuse seitsmeaastase lepingu eraettevõttega, mis tegeleb linnade taristu kavandamise ja hangetega. Tegu on põhiülesandega, mida ei peaks sisse ostma. Lepingu ulatuse ja elluviimise mudeli valikus on olulised järgmised küsimused. Kas projekt tuleks jagada mitmeks lepinguks? Kui jah, siis mis laadi lepingud need peaksid olema? Kas need peaksid jääma konkurentsipõhiseks või hõlmama lähenemisviise, mis sõltuvad rohkem läbirääkimistest ja koostööst? Viimase abil võib olla kergem tulla toime projekti keerukusest tingitud ebakindlusega ja see võib luua paremad eeldused uuendusteks, ent võib põhjustada suuremaid kulusid, kui seda rakendatakse ebapiisavatele projektidele või nende osadele. Maksesüsteem ja teised stiimulid määravad töövõtja motivatsiooni projekti tähtajaks ja eelarve piires ellu viia. Nagu eelnevalt mainiti, tuleks põhisummaga lepinguid või lepingute tähtajaks ja eelarve piires elluviimise nõuet kasutada harva, kuna igasugused ebakindlused lepingu hinna määramise ajal toovad keskmiselt kaasa liiga suure ettenägematute tööde reservi ja mõnedel juhtudel töövõtja pankrotistumise. Lepingud peavad kas sisaldama äärmiselt lihtsaid töid (nt muru niitmine) või on konkreetse projekti tähtajaks ja eelarve piires ellu viimine niivõrd oluline, et avaliku sektori klient on valmis selle tulemuse eest suurt lisatasu maksma. Eestis uue hankestrateegia koostamine ja juurutamine on laiaulatuslik projekt. Selle jaoks on vaja järkjärgulisi etappe ning seda tuleks teha valitsuse vastu võetud ametliku strateegia alusel (sarnaselt 58 Ühendkuningriigi transpordiministeeriumi algatusega „Infrastructure efficiency strategy“ („Taristu tõhususe strateegia“)19 ). Selle strateegia esimene etapp võiks olla valdkonnaülese ühikuhindade andmebaasi loomine. Teises etapis võiks Eesti jätkata hiljuti välja töötatud töövahendite rakendamisega, et toetada valmistamise või ostmise, lepingu ulatuse määramise ja elluviimise mudeli otsuste langetamist. Katsemehhanism on juba aastaid olnud Austraalias testimisfaasis (ITF, 2018b). ITFi hiljutine suurprojekte puudutav töö täiendab ka Austraalia töövahendit (Kennedy et al., 2018). Kolmas etapp oleks projektijuhtimise standardite juurutamine. Näib, et Ühendkuningriik on selles valdkonnas juhtival kohal, kuna andis just välja uue projektide elluviimise standardite kogumi (IPA, 2018b). Neljas etapp oleks uute lepingute sõlmimise ja elluviimise mudelite kasutuselevõtuks vajalike eeltingimuste uurimine Eestis (nt töövõtja varajane kaasamine, liitude loomine jne). Viimases viiendas etapis tuleks hanketegevus muuta professionaalseks. Kohapealsed hankekonsultandid peaksid andma nõu kõigi hankestrateegia aspektide kohta. Jaotis 2.1 „Asutuste struktuur“ loob eeldused majandus- ja kommunikatsiooniministeeriumis tehniliste vahendite keskuse loomiseks. Tarnehangetel võivad olla teatud valdkonnale või transpordiliigile omased aspektid, mistõttu on oluline, et eksperdid oleksid „sündmustele lähedal“. Seetõttu peaksid tehniliste vahendite keskuse töötajad asuma vajadusel samas kohas, kus hankeülesannetega ametid. See tähendab, et vähemalt üks tehniliste vahendite keskuse ekspert peaks olema kohapeal igas ametis, kus on pidevalt vajadus hankealaste nõuannete või suuniste järele (nt Maanteeamet või tulevane maanteede ettevõte, nagu sätestati jaotises 2.1 „Asutuste struktuur“). Kui eksperdid jooksvalt nõu ei anna, võivad nad analüüsida hankevaldkonna hetkearenguid ning aidata koostada hangetega seotud suuniseid, st toetada tehniliste vahendite keskuse teisi peamisi ülesandeid. Nagu mainiti jaotises 2.1 „Asutuste struktuur“, peaks samas jaotises välja pakutud Eesti Taristu amet ühtlustama transpordivaldkonnast kaugemale ulatuvate erinevate sektorite koostatud investeeringute hindamise ja hanke suuniseid. Millist rolli peaks aga mängima rahandusministeeriumis olemasolev hankeosakond? Selle peavad kindlaks määrama Eesti ametivõimud. Praegu kontrollib osakond vastavust Euroopa Liidu direktiividele. Pöörata esmajärjekorras tähelepanu Rail Balticu riskianalüüsis tuvastatud riskide leevendamise meetmete rakendamisele ja kasutada otsuste langetamises projekti kõige tõenäolisemat kulude prognoosi EY (2017) riskianalüüs sisaldas mitmeid kriitilisi punkte, millele tuleks tähelepanu pöörata enne projektihanke algust. Praegu toimub hankestrateegia väljatöötamine. Muuhulgas on oluline element projekti võimaliku ühikuhinna analüüs, mis toetab hanget ja sellega seotud protsesse, näiteks piisava eelarve tagamist. Lisaks on oluline, et Eestis hakataks tegutsema kõige tõenäolisema kuluprognoosi põhjal. Riskiga korrigeeritud kuluprognoosi saamiseks tuleb võtta inseneride (projekti põhjal) koostatud algne prognoos ning liita sellele hinnalisand, mis on saadud Monte Carlo riskide mõjude ja tõenäosuse analüüsist (sisaldub riskihidamises). Kava üksikasjade arenedes muutub ka algne prognoos (praegune prognoos on 1,59 miljardit eurot, võrreldes esialgse 1,35 miljardi euroga) ning seda tuleb vastavalt korrigeerida. Riskide põhjustatud hinnalisand võib suureneda, kui tuvastatakse uusi riske, või väheneda, sõltuvalt kasutatavate riskide maandamise meetmete usaldusväärsusest. Valitsuse siseselt tuleks tegutseda kõige uuemate prognooside põhjal. Avalikkusele tuleks regulaarselt avaldada ajakohast teavet, vähemalt kahes kavandi väljatöötamise peamises punktis, et projektis oleks võimalik ja et säilitada valitsuse usaldusväärsust. Kui puudub poliitiline tahe tegutseda kõige tõenäolisema numbri alusel, isegi kui see avaldab projekti tasuvusanalüüsile negatiivset mõju, võib see tuua kaasa erinevaid kahjulikke tagajärgi. 59 Kui näiteks projektiga oluliselt viivitatakse, võib osa rahastusest lükkuda edasi järgmisesse finantsplaneerimise perioodi, mis muudab ELi kaasrahastuse lõpliku osakaalu ebamääraseks. Kõige madalama ametliku kuluprognoosi kasutamine ei ole ilmselgelt Eesti jaoks parim. Lisaks, kui kasutatakse numbreid ja tähtaegu, mis on suure tõenäosusega ebarealistlikud, ei tekita see inimestes soovi esitada numbreid ja mõjusid sellistena, nagu nad päriselt on. Sellest tulenevalt on otsuste langetajatel vähem võimalusi selgitada välja riskid ja probleemid enne nende esinemist, kui nende osas oleks veel võimalik midagi ette võtta. Taristuvaldkonna hankeid korraldavad avaliku sektori kliendid peaksid võtma tarvitusele alternatiivseid hankemeetodeid, et uuendusi luua. Traditsiooniline kõige madalamal hinnal põhinev elluviimise mudel pakub enamiku taristuprojektide jaoks väga häid tulemusi ja peaks jääma hangete alustalaks. Samas ei soodusta selline lähenemisviis pakkumust esitavate töövõtjate ja avaliku sektori kliendi vahelist teabevahetust ning töövõtjad kaasatakse protsessi alles pärast detailplaneeringu valmimist. Viimastel aastakümnetel on kujunenud välja lähenemisviise, milles kaasatakse töövõtjaid juba protsessi varasemas etapis ning mis põhinevad pigem läbirääkimiste, mitte konkurentsi põhimõttel (nt töövõtja varajane kaasamine). Nendes projektides on tähelepanu keskmes parim väärtus, mitte madalaim hind. Olulist ebakindlust tekitavate või paljude alternatiivsete lahendustega suuremate projektide puhul võib olla mõistlik kasutada lähenemisviisi, kus töövõtja saab juba varakult hakata projekteerija ja kliendiga koostööd tegema, et leida alternatiivseid lahendusi või pakkuda välja uuendusi. Alternatiivsete lepingu sõlmimise meetodite ning nende väärtusele, kuludele ja elluviimise ajale avalduvate lõplike mõjude uurimine on alles algusjärgus, ehkki nende välja kujunemisest on möödas mitukümmend aastat. Eesti peaks lähenema sellele ettevaatlikult ning rakendama alternatiivseid lepingu sõlmimise vorme alguses katsepõhiselt ning tagama analüüsi ja tulemuste laialdase levitamise. Üks viis sobivate projektide väljaselgitamiseks oleks rakendada eelnevalt viidatud Austraalias katsetatud hankestrateegia otsustusmudelit (ITF, 2018b), et selgitada välja, kus oleks kõige parem alternatiivseid lepingu sõlmimise meetodeid kasutada. 2.4. Taristu rahastamine ja erarahastamise roll Eesti on alles hakanud juurutama avaliku ja erasektori partnerlust ning kaaluma selle kasutamist maanteetaristu projektides saadavuspõhise mudeli alusel. Arvestades, et seda hankevõimalust kaalutakse alles nüüd, puudub põhiküsimuste analüüs ning suures osas on jaotise eesmärk tuua esile selle variandiga seotud poliitilisi riske ja võimalusi, tuginedes uusimatele teadmistele. See põhineb ITFi (2018) dokumendil, kus kirjeldati põhjalikult taristus erarahastuse kasutamise tõendeid ja ettepanekuid. Lisaks tugineb jaotis olulisel määra ka muude teemade raames tehtud tööle, iseäranis lähenemisviisidele, mis puudutavad projektide valikut ja kasutajatasudest saadud maanteerahastuse osakaalu. Jaotises uuritakse 1) millised on Eesti ametnike seisukohad avaliku ja erasektori partnerluse osas kohtumise ajal, 2) millist rolli mängib erarahastus taristuhangetes, 3) millised on avaliku ja erasektori partnerlusega seotud proovikivid ja tähelepanu väärivad küsimused, kui Eesti peaks otsustama selles vallas tegutseda ja 4) millised variandid on Eestil, kui avaliku ja erasektori partnerlust mitte kasutada. Reformi valdkonnad Eestis on vaja suuremat selgust avaliku ja erasektori partnerluse tulemuste kohta seoses poliitiliste mõjude, võimalike elluviimise probleemide ning saadaolevate avaliku sektori alternatiivide olemuse ja eelistega. Eesti ametnikud on teadlikud Euroopa raamatupidamisstandardite süsteemi ESA10 põhjustatud soovimatutest stiimulitest. Selle standardi kohaselt ei tule avaliku sektori võla aruandesse kanda võlga, mis 60 tuleneb avaliku ja erasektori partnerlusest. Lisaks need, mida on käsitletud käesoleva aruande asutuste struktuuri jaotises. Järgnevalt on toodud soovituslikud reformi valdkonnad. Eristada rahastust ja finantseerimist ning erasektori rahastuse rolli taristuvaldkonnas ja mujal Avaliku ja erasektori partnerlusega kaasnevad erinevad ettepanekud, mis on seotud nende eelistega traditsiooniliste riigihangete ees. Makovšek (2019) analüüsis üksikasjalikult peamisi ettepanekuid, hõlmates kolme järgmist rolli, kus avaliku ja erasektori partnerlus saab:  suurendada tõhusust võrreldes tranditsiooniliste riigihangete ja juhtimisega  muuta ressursside jaotamist tõhusamaks, kuna riik ei saa viia ellu projekte, mis ei ole majanduslikult õigustatud, st ei vii mitte kuhugi  leevendada avaliku sektori laenupiiranguid, viidates sellele, et avaliku ja erasektori partnerlus võib aidata rahastamisprobleeme lahendada. Avaliku ja erasektori partnerluse soorituse tõhusust puudutavad tõendid ei anna edasi ühest pilti. Firma või projekti sooritus on tõhus, kui see tagab teatud toodangu minimaalsete kuludega. Tõhususe muudatusi saab mõõta, kui võrrelda süsteemi sooritust enne soorituse parandamiseks tehtud muudatust ja pärast seda. Teise võimalusena võiks süsteemi võrrelda ka teistega, et näha, kas sooritus on parem või halvem. Ükskõik, milliseid keerukaid kvantitatiivseid tehnikaid kasutada, on keeruline saavutada samaväärset võrdlust, kui võrreldakse erinevaid valitsemise (ja omandi) vorme. Makovšek (2019) koostas ülevaate maantee-, raudtee-, lennundus- ja merendussektorite kohta ja tema järelduse kohaselt puuduvad otsustavad tõendid, et avaliku ja erasektori partnerlus suurendab maantee- ja raudteeprojektide soorituse tõhusust. Kõige enam on avaliku ja erasektori partnerluse osas uuritud maanteeprojekte. Kuna praeguseni ei ole valitsused süsteemselt kogunud andmeid soorituse kohta, ei ole võimalik analüüsida projektide kvaliteedi ja hinna suhet. Avaliku ja erasektori partnerluse kasutamisel sadama- ja lennujaamaprojektides on täheldatud soorituse paranemist, ent usaldusväärseid järeldusi on keeruline teha, kuna avaliku ja erasektori partnerluse juurutamisega kaasnevad sageli ka muud asutustega seotud või õigusreformid. Teine konkreetne proovikivi on tagada juhuvalikut, st et kui valitsused ei vali avaliku ja erasektori partnerlusena hangitavaid projekte juhuslikult, võivad teatud tunnused nende valikut suunata, muutes võrdluse traditsiooniliste projektidega kallutatuks. Avaliku ja erasektori partnerlus ei saa parandada projektide valikut ega takistada majanduslikult põhjendamatute projektide elluviimist Üks eelis, mis arvatakse avaliku ja erasektori partnerlusel olevat, on paranenud projektide valik. Engel, Fischer ja Galetovic (2020) väidavad, et kasutajate rahastatud avaliku ja erasektori partnerlused võivad takistada majanduslikult põhjendamatute projektidega jätkamist, kuna tulevased erasektori partnerid pole nõus projektidega, mis nende kulusid ei kata. Ehkki see väide ulatub tagasi Adam Smithi (1776) ja tema teose „Uurimus riikide rikkuse iseloomust ja põhjustest“20 juurde, ei arvestata selle juures praeguse projektide valiku olemust. Makovšek (2019) tõi välja probleemid, mis kaasnevad valitsustele hankemehhanismi valiku õiguse jätmisega, ja selle mis juhtub siis, kui valitsuselt see õigus ära võtta. Kui valitsusele jääb õigus hankemehhanismi valida, ei saa avaliku ja erasektori partnerlus projektide valikut parandada. Enne hanke algust tehakse üldjuhul tasuvusanalüüs ja selleks on vaja liikluse prognoosi. Valitsused ei tee üldiselt liiklusprognoose ise, vaid ostavad teenuse sisse. Kui valitsus soovib projektiga 61 jätkata, kuid teab juba eelnevalt, et tõenäoliselt ei suudeta projekti kulusid mõistliku aja jooksul teemaksude kaudu katta, ei hakka see üldse avaliku ja erasektori partnerluse testi tegemagi. Kui valitsus otsustab aga koostada sellise maanteede kava, kus nõutakse kõigilt projektidelt (või positiivse tasuvusanalüüsi tulemusega projektidelt) avaliku ja erasektori partnerluse testi tegemist, jätkataks vaid nendega, mis saavutavad nõutud kapitalituru tulumäära. Kui võtta eelduseks, et avaliku ja erasektori partnerlus on kulutõhusam kui avaliku sektori mudelid, kätkeb eelnev ettepanek endas probleeme, kuna:  kapitaliturgude riskivalmidus ei ole stabiilne ja vajalik tulumäär ei pruugi tingimata kajastada projekti sotsiaalset soovitavust (vt Makovšek (2019), nõudluse riskivalmiduse kõikumine), st et kapitaliturgude riskitundlikkus võib olla suurem turgusid endid puudutavatel põhjustel, mitte konkreetse projekti nõudluse ja teemaksupotentsiaali tõttu;  võib olla märkimisväärne hulk maanteelõike, mis on tasuvusanalüüsi tulemuste kohaselt soovitavad, ent ei suuda täita erasektori tasuvusnõudeid. Kui nende elluviimise üle saab otsustada valitsus, ei saavutata avaliku ja erasektori partnerluse filtriga midagi. Kui valitsus nendega edasi ei lähe, jäädaks ilma olulisest kasust ühiskonnale. Kui aga tasuvusanalüüsi läbiviimine viidaks üle erasektorile, tekiks soovimatu stiimul kinnitada nii palju projekte kui võimalik, asendades ühe moraalse ohu teisega. Lisaks ülaltoodule on ka muid viise, kuidas valitsus saab avaliku ja erasektori partnerluse filtri kõrvale heita. Näiteks on paljud valitsused loonud maantee-ettevõtted, mis tegelevad kogu riigi taristuga ja mida rahastatakse teemaksude kaudu (nt DARS Sloveenias ja AsFinAg Austrias). Neis võrgustikes võib olla lõike, mis polnud küll majanduslikult õigustatud, kuid mida teised lõigud omakorda toetavad. Valitsus võiks teha sama ka avaliku ja erasektori partnerluse ulatuse kavandamisel ja valida välja lõigud, mida saaks toetada nende lõikudega, mis kulusid tasa ei teeni, saavutades seega siiski kokkuvõttes erasektori nõutava käibe. Neid probleeme oleks võimalik lahendada vaid siis, kui ka erasektor vastutaks taristu kavandamise eest. Kuna see tooks aga omakorda kaasa uusi keerulisi probleeme, pole siiani üheski arenenud majandusega riigis antud valitsuse kui keskse taristu kavandaja rolli üle erasektorile. Kokkuvõtlikult võib öelda, et projektide valik on valitsuse ülesanne ning siiani pole leitud ühtegi mehhanismi, mis suudaks edukalt selle kohustuse üle võtta. Seega ei aita avaliku ja erasektori partnerlus projekte paremini valida. Avaliku ja erasektori partnerlus ei anna riigile kulutamiseks rohkem raha. Levinud avaliku ja erasektori partnerlust puudutav väärarusaam on seotud finantseerimise ja rahastamise mõtete segiajamisega. Laialdaselt eeldatakse, et valitsus saab erakapitaliinvesteeringute mobiliseerimisega investeeringute rahastuse allikaid laiendada. Siin ei arvestata aga tõsiasjaga, et see täiendav kapitaliinvesteering tuleb kasumiga tagasi maksta, samal viisil kui siis, kui valitsus rahastaks projekti otseselt võlakirjade emiteerimise kaudu. Avaliku ja erasektori partnerlus on ühtaegu nii hankevahend kui ka veel üks võimalus valitsusel laenu võtmiseks. Sõltumata laenamise vormist on tagasi maksmiseks vaja tarvitada kas üldiseid või sihtotstarbelisi makse või kasutajatasusid. Teine väärarusaam on, et avaliku ja erasektori partnerlusega saab avaliku sektori laenupiirangut suurendada, st et riik saab avaliku ja erasektori partnerluse kaudu rohkem laenata kui muidu. See probleem tekib ebapiisavate raamatupidamisstandardite rakendamisest, milles ei kajastata avaliku sektori bilansis nõuetekohaselt avaliku ja erasektori partnerlusega seotud varasid ja kohustusi. Sellest tulenevalt ei tule avaliku ja erasektori partnerlusega seotud kohustusi, olgu need kasutusvalmidusel või kasutajatasudel põhinevad, üldiselt Euroopa Liidule esitatavas avaliku sektori võlaaruandes kajastada. Vaatamata varasematele katsetele seda reformida, võimaldab Euroopa raamatupidamisstandardite süsteem (ESA10) 62 endiselt käsitleda avaliku ja erasektori partnerlusi bilansiväliselt, luues nende kasutamiseks soovimatu stiimuli. Need raamatupidamise puudujäägid tekitavad mulje, et avaliku sektori võlg on tegelikust väiksem, ehkki need ei suurenda tegelikult laenuvõimet. Kui avaliku ja erasektori partnerlus põhineb kasutusvalmidusel (st et seda rahastatakse riigieelarvest), peab valitsus tasuma aastamaksu, harilikult kümneid aastaid järjest. See võimaldab võimul oleval valitsusel rohkem kulutada, ent piirab tulevaste valitsuste investeerimisvõimalusi. Kui kasutatakse ohtralt avaliku ja erasektori partnerlust, pannakse oluline osa valitsuse kuludest juba ennetavalt kinni, vähendades eelarve paindlikkust. See selgitab, miks Eesti loobus 2012. aastal maanteede ja muude eesmärkide jaoks maksutulu eraldamisest. Nii sai riik tulla paremini toime suurte fiskaalolukorra muudatustega, näiteks viimase üleilmse majanduskriisiga. Rahvusvaheline Valuutafond (IMF) on töötanud välja vahendi avaliku ja erasektori partnerluse riskipositsiooni jälgimiseks (PFRAM – avaliku ja erasektori partnerluse eelarveriski hindamise mudel), mis aitab selle probleemiga toime tulla. Tõsisem probleem on, et avaliku ja erasektori partnerluse kasuks otsustamine raamatupidamise stiimuli tõttu võib viia kvaliteedi ja hinna suhte põhjal elluviidavate uute projektide nõrgendamise või eiramiseni. Seda riski suurendavad veelgi nõrkused Eesti projektide määratlemises, hindamises ja valikus nõrkused, mis toodi välja punktis 2.2. „Taristu kavandamine ja projekti valimine“. Neis riikides, millel on avaliku ja erasektori partnerluse kasutamisega märkimisväärseid kogemusi, on valitsust pidevalt kritiseeritud selles, et nad ei suuda hankevariantide erapooletut valikut tagada. Vaatamata erinevatele meetmetele tasakaalustatud valiku tagamiseks leiavad ministeeriumid end sageli olukorrast, kus projekti on võimalik rahastada kas avaliku ja erasektori partnerlusega või üldse mitte (NAO, 2018). Selle tagajärjel kaotasid erasektori rahastusega taristuprojektid 2018. aastal poliitilise toe, pärast seda kui neid kritiseerisid nii riigikontroll kui akadeemiline ringkond ning mitu olulist avaliku ja erasektori partnerluse algatust kukkusid läbi.21 Arvestades, et Eesti kui Euroopa Liidu liikmesriik on kohustatud ESA10 standardit rakendama, on selle võimalused avaliku ja erasektori partnerluse erapooletusega tegelemisel piiratud, kuid mõned ettepanekud on esitatud punktis „Avaliku ja erasektori partnerluse kasutamine Eestis: avaliku ja erasektori partnerluse olulised edutegurid“. Muud avaliku ja erasektori partnerluste väljapakutud eelised Avaliku ja erasektori partnerlust seostatakse sageli ka teiste eelistega (vt nt Engel, Fischer and Galetovic, 2020), sõltuvalt avaliku sektori alternatiivist, millega avaliku ja erasektori partnerlust võrrelda. Sageli kasutatakse avaliku ja erasektori partnerluse eelistest rääkides kõige nõrgemat vanimat avaliku sektori alternatiivi. Avaliku sektori vanim lähenemisviis taristu haldamisele põhineb riigiasutusel, mida rahastatakse riigieelarvest ning mis hangib ehitus- ja hooldustöid erasektori turult. Nii hallatakse maanteesektorit Eestis ja sama mudelit kasutatakse ka paljudes teistes maailma riikides. Eelarve kaudu rahastamisega kaasneb kaks probleemi. Esiteks toob maksudega rahastamine kaasa tühikulu, mida majandusteadlased nimetavad avaliku sektori rahastamise piirkuluks, kuna maksud pärsivad inimeste soovi töötada. Seega põhjustab iga maksude kaudu hangitud euro ühiskonnale lisakulusid. Selle põhimõtte lühikirjeldus on toodud Makovšeki väljaandes (2019). Teiseks on riikides olnud keeruline taristukulude järjepidevust aja jooksul säilitada, tuues mõnedel juhtudel kaasa suure hulga tegemata hooldustöid (vt Euroopa andmeid väljaandes Makovšek (2018)). Taristu puuduliku hoolduse tagajärjed ei paista otsekohe silma. Riigieelarve iga-aastased poliitilised läbirääkimised võivad mõjutada hoolduseelarvete prognoositavust ning seega ka hoolduse planeerimise tõhusust. Iga prognoositava ja 63 piisava hoolduseelarvega taristuettevõte suudab hooldustöid paremini läbi viia kui ettevõte, mille järgmise mitme aasta eelarve suurus on kahtluse all. Kasutusvalmidusel põhinevad avaliku ja erasektori partnerlused seavad riigile lepingulise kohustuse maksta aastamaksu, mis muudab hoolduseelarve prognoositavamaks. Sellele vaatamata ei hoolda ükski riik kõiki maanteid avaliku ja erasektori partnerluse kaudu. Kui teemaksu ei kehtestata, parandab küll mõne projekti hankimine avaliku ja erasektori partnerlusena hooldusstandardit, ent ülejäänud maanteedevõrk jääb sellega võrreldes halvemasse positsiooni. Avaliku ja erasektori partnerluse rahastamiseks teemaksu kehtestamine on poliitiliselt keeruline. Kui riik suudab aga teemaksu kehtestada, saab ta seda teha kõigi hankemudelite korral. Paljud riigid (nt Austria, Sloveenia, Slovakkia) on asutanud teemaksu kaudu rahastatavad maantee-ettevõtted, mis ei sõltu iga- aastasest riigieelarve poliitilisest tsüklist. Need ettevõtted saavad ka hajutada oma liikluse nõudluse riski kogu teedevõrgule ja pikema aja peale oma laenuportfellide valdamise korrigeerimisega, kasutades parimate intressimäärade tagamiseks refinantseerimist.22 See ettevõte saab ka kasutada nüüdisaegseid taristuvaldkonna hankelepinguid nagu projekteerimis- ja ehitustöövõtt või peatöövõtja varajane kaasamine, kui nad soovivad taristu kulude vähendamiseks panna suuremat rõhku uuendustele. Kasutaja rahastatava avaliku ja erasektori partnerluse vastand on kasutajate rahastav riigi omandis maanteevõrku või suuremates riikides maanteevõrgu osa haldav taristuettevõte. Seda küsimust ja sellega seonduvaid tõhususe suurendamise stiimuleid uuritakse lähemalt allpool. Kaaluda üksikute avaliku ja erasektori partnerluse projektide asemel süsteemseid avaliku sektori taristu haldamise reforme Mis on avaliku ja erasektori partnerluse peamine probleem? Kaalukate tõendite puudumise tõttu on avaliku ja erasektori partnerluse toetus põhinenud teoreetilistel väidetel, mis puudutavad näiteks avaliku ja erasektori partnerluse lepingutes sisalduvaid jõulisti stiimuleid (nt suured karistused töövõtjatele, kui nad projekti õigel ajal ellu ei vii, fikseeritud eelarve) ja projekti etappide kombineerimist. Siiani ei ole avaliku ja erasektori partnerluse tõhususe suurendamise põhjustele erilist tähelepanu pööratud ning see omakorda suurendab pakkujate ebakindlust lepingu hinna määramisel (ITF 2018). Näiteks, kui pakkuja peab pidama kinni kindlaks hinnast ja üleandmise kuupäevast ning vastutab täielikult lepingu kavandamise ja elluviimise eest, on tal eeldatavasti üsna täpne ülevaade projekti täide viimiseks vajalikest ressurssidest ja ajast. Kui pakkuja ei suuda neid koguseid täpselt prognoosida, on vaja kehtestada väga suur ettenägematute kulutuste reserv. Riskikartlik käitumine tähendab, et keskmiselt on need ettenägematute kulude reservid liiga suured. Avaliku ja erasektori partnerluses puudub igasugune järelmehhanism, millega kontrollida ülemäärast majanduslikku tulu. See probleem esineb kõigi saadavuspõhiste avaliku ja erasektori partnerluse lepingute ja kasutajate rahastusega lepingute puhul, ent kasutajad on suletud turul ja neil on vähe võimalusi reageerida näiteks kvaliteediga seotud probleemidele. Näiteks on need omadused kõigil maanteede valdkonna avaliku ja erasektori partnerlustel, kuna turg ei nõustu uutel maanteelõikudel avaliku ja erasektori partnerlusega, kui tagatud ei ole ainuõigust ja kasutajatel puuduvad samaväärsed liikumisvõimalused. ITF (2018) pakkus aga välja avaliku ja erasektori partnerluse kasutamise neil juhtudel, kus kasutajad saavad teenuse taseme muutustele jõuliselt reageerida (nõudlus tuleneb seestpoolt). Neile kriteeriumidele vastavad meresadama või lennusadama avaliku ja erasektori partnerlused, mis konkureerivad samas teeninduspiirkonnas. Sellisel juhul avaldavad teised konkureerivad teenuseosutajad avaliku ja erasektori 64 partnerluse konsortsiumile pidevat survet, pakkudes stiimulit tõhususe suurendamiseks ja vähendades ebatavaliselt suurt tulu. Millised on avaliku sektori alternatiivid avaliku ja erasektori partnerlusele? Üks peamisi Eesti mõttes asjakohaseid alternatiive avaliku ja erasektori partnerlusele on taristu juhtfunktsiooni ülekandmine ettevõttele (punkt 4.1). Täpsemalt tähendaks see Maanteeameti muutmist maantee-ettevõtteks. Teine võimalus on hõlmata taristu varade haldusesse stiimulite reguleerimise vormi, mida tuntakse reguleeritavate varade väärtuse mudelina ning mida kasutatakse sageli kommunaalteenuste reguleerimisel. Ühendkuningriik oli üks esimesi riike, mis seda lähenemisviisi oma maantee-ettevõttes kasutas. Kui seda tehtaks Eestis, peaks praegune reguleerimisasutus (Tarbijakaitse ja Tehnilise Järelevalve Amet) võtma enda kanda veel ühe rolli. Selleks oleks stiimulite reguleerimise ülesanne, jälgides ja toetades maanteetaristu ning teiste taristuvaldkonna ettevõtete juhtimise tõhusust konkurentsisurve puudumisel, näiteks riikliku lennujaama ja raudteetaristu puhul. Riigi omandis olevate taristuettevõtete võimalikult suure tõhususe potentsiaali tagamiseks peaks nende rahastus olema võimalusel riigieelarvest eraldi. Iseäranis tuleks maanteevaldkonnas Eestis seega kehtestada maanteemaksud ja uuesti kehtestada ühistranspordi piletihinnad, nagu pakutakse välja punktis 2.5 „Kasutajate käitumise ja ühistranspordi poliitika suunamine“. Kuna Eesti kodanikud juba maksavad taristu eest kütusemaksude kaudu, peaks olema võimalik kehtestada teemakse, tasaarveldades neid kütusemaksudega. Taanis näiteks kuulub valdusettevõttele Sund&Belt mitu riigi omandis olevat ettevõtet, mis ennast ise rahastavad. Lisaks on valdusettevõttele antud riigigarantii ja see rahastab end 0,50% riigi riskivabast määrast kõrgema hinnalisaga. Sellele vaatamata lubavad Eurostati reeglid ettevõtet endiselt bilansiväliselt kajastada (Joonis 4). Joonis 4. Riigile kuuluv taristu haldusettevõte Allikas: Holm ja Horstmann-Nielsen (2018). Kui uus Eesti maantee-ettevõte suudaks katta enam kui 50% oma kuludest teemaksudega (koos teiste vähem nõudlike tingimustega), saaks ettevõtet ja selle kohustusi kajastada bilansiväliselt, nagu avaliku ja erasektori partnerluse puhul. Praegu tehakse seda mitmes riigis. Näiteks Sloveenias vastutab DARS kõigi 65 riigi maanteede eest, mis on ehitatud 20 aasta jooksul. Ettevõtet rahastatakse raskeveokite teemaksude ja isiklike sõiduautode teemaksukleebiste kaudu. Kuna ettevõte vastutab riigi maanteedega seotud mitme miljardi euro suuruse võla eest, töötavad valitsused selle nimel, et ettevõtte võimet võlga tagasi maksta mitte ohtu seada. Kui ettevõte ei suuda 50% oma kuludest katta, tuleb selle kohustused otsekohe ümber klassifitseerida ning see suurendab märkimisväärselt avaliku sektori võlga. See poliitiline stiimul ettevõtte rahastamisvoogudesse sekkumisest hoidumiseks on aidanud rahastust prognoositavamaks muuta. See on tõhusa hooldusstrateegia oluline element. Eelnevalt kirjeldatud struktuuri oluline aspekt on, et see kujutab endas terviklikku lähenemisviisi maanteevõrgu ettevõtete juhtimisele ja transpordipoliitika elluviimisele. Kui aga teedevõrgu juhuslikel lõikude puhul kasutataks avaliku ja erasektori partnerlust koos avaliku sektori juhtimisega, muudaks see kogu teedevõrgus transpordipoliitika muudatuste tegemise keerukamaks. Mis tahes kogu maanteevõrku hõlmavate reformide puhul tuleks tõenäoliselt avaliku ja erasektori partnerluse lepingud uuesti läbi rääkida. Avaliku ja erasektori partnerluse kasutamine Eestis: otsustavad tegurid edu jaoks Kui Eesti valitsus soovib avaliku ja erasektori partnerlusega edasi minna, tuleks seda teha parimaid rahvusvahelisi tavasid kajastava detailse poliitikaraamistiku piires, et suurendada projektide eduka elluviimise tõenäosust ning parandada hinna ja kvaliteedi suhet. Valitsustevahelisted organisatsioonid on koostanud ohtralt avaliku ja erasektori partnerlust toetavaid suuniseid, näiteks Euroopa Investeerimispanga Euroopa avaliku ja erasektori partnerluse eksperdikeskus (EPEC)23, Maailmapank24 või Global Infrastructure Hub (üleilmne taristukeskus).25 Need ulatuslikud suunised käsitlevad:  õigusraamistikku  asutuste korraldust  avaliku ja erasektori partnerluse projektide valimist ja koostamist  lepingute haldamist Eestis on koostatud avaliku ja erasektori partnerluse juhendmaterjalide kavandid (TGS Baltic, 2019a; TGS Baltic, 2019b), mis sisaldavad küll suurt osa neist materjalidest, et neis on siiski arenguruumi. Eesti avaliku ja erasektori partnerluse suuniste kavandis sisaldub ka mitu avaliku ja erasektori partnerluse eeldatava kasuga seotud väärarusaama (nt et need parandavad projektide valikut ja aitavad kulusid aja jooksul hajutada). Suuniseid tuleks muuta, et seal ei sisalduks ainult avaliku ja erasektori partnerluse võimalikud eelised, vaid ka riskid. Kasulikud lähtekohad on toodud eelnevas analüüsis. Järgnevalt on esitatud mõned viimast kolme punkti puudutavad hoiatused, kusjuures kolmas punkt on jagatud kaheks erinevaks aruteluteemaks. Asutuste korraldus Avaliku ja erasektori partnerluse programmi ellu viimiseks on vaja luua avaliku ja erasektori partnerluse teabekeskus. See tuleks liita kavandatud tehniliste vahendite keskusega, kuhu koonduvad hankevaldkonna ekspertteadmised ning mis on kooskõlas punktis 2.1 välja pakutud asutuste struktuuri soovitustega. Kui viimaks rajatakse tehniliste vahendite keskused ka teistes sektorites (elektrienergia, vesi, elamud), võiksid need kooskõlastada oma sektorist kaugemale ulatuvate avaliku ja erasektori partnerluse suuniste ja tehnilise toe loomist. Selle järelevalvet teostaks punktis „Asutuste struktuur“ välja pakutud valdkondadeülene organ Eesti Taristu. 66 Projektide valik Oluline element avaliku ja erasektori partnerluse erapooletus rakendamises oleks juurutada avaliku sektori raamatupidamise standardit IPSAS32, mida Eesti on juba teinud. IMF soovitab seda standardit kasutada (Funke, Irwin and Rial, 2013) kodanikele ja turule esitatavates finantsaruannetes. IPSAS32 põhineb raamatupidamispõhimõtetel (täpsemalt majanduskontrolli põhimõtetel), mis tagavad avaliku ja erasektori partnerlustega seotud kohustuste kajastamise riigi bilansis, aidates kaasa suuremale läbipaistvusele.26 Kuni Euroopa raamatupidamisstandardeid ei reformita, pole võimalik täielikult tasakaalustada erapooletust avaliku ja erasektori partnerluse suhtes, mida põhjustab avaliku ja erasektori partnerluse kajastamise viis Euroopa Liidu raamatupidamises. Eestil on siiski võimalik võtta meetmeid erapooletuse leevendamiseks. Esimene samm on läbipaistvuse suurendamine. Selle tegemiseks saab võtta kokku avaliku ja erasektori partnerlusega seotud kohustused ja tingimuslikud kohustised ning muuta need üldsusele riigieelarve kaudu kättesaadavaks ja arutada neid eelarvepoliitikas (IMF, 2019). Teiseks tuleks püüda tasakaalustada Eesti teatud projektide valikul otsuste langetajate sundolukorda panekut. See on eriti asjakohane, kui projekti saab jätkata kas ainult avaliku ja erasektori partnerlusena või projekt jääb üldse ära. Varasemalt kasutasid riigid vahendit Public Sector Comparator (võrdlusvahend avalikule sektorile) hindamiseks, milline avaliku ja erasektori partnerlus tagab projekti valikul parema hinna ja kvaliteedi suhte. Sellel töövahendil puudusid empiirilised andmed, see tugines põhjendamatutele jõulistele eeldustele, oli kallutatud avaliku ja erasektori partnerluse poole ning jäeti lõpuks kõrvale esimese riigis, mis selle kasutamist pooldas – Ühendkuningriigis (vt eelnevat punkti „Avaliku ja erasektori partnerlus ei anna riigile kasutamiseks rohkem raha“). Mujal on välja töötatud kvalitatiivsed ülevaated otsustamiseks, kas projekti on sobiv ellu viia avaliku ja erasektori partnerlusena, kuid seal ei hinnata, kas avaliku ja erasektori partnerlus on avaliku sektori alternatiivist parem.27 Kui projekt pole just väga väike, on enamikku projekte võimalik üles ehitada selliselt, et neid saab hankida avaliku ja erasektori partnerlusena. Kui Eesti otsustab avaliku ja erasektori partnerlusega jätkata, ei ole avaliku sektori võrdlusvahendi välja töötamine otstarbekas, kuna üheski riigis pole suudetud koguda nii palju andmeid, et analüüsi piisavalt sisukaks muuta. Selle asemel tuleks Eestis lihtsalt hinnata, millised projektid on avaliku ja erasektori partnerlusena ellu viimiseks sobilikud või vähem sobilikud.28 Ühe aspektina tasub kaaluda projekti sobilikku suurust. Projekti suuruse vähendamisega (näiteks maanteeprojekti eraldiseisvateks lepinguteks jagamisega) kaasneb liigselt tehingukulusid ja tuleb luua ohtralt üleminekuid ühelt lepingult teisele, mis põhjustab lisariske ja kulusid. Väiksemate projektidega on ka keeruline köita piisavalt rahvusvaheliste kapitaliturgude huvi ning see toob kaasa suuremad finantseerimiskulud. Seega tuleks Eestis vältida avaliku ja erasektori partnerluse lepingute osadeks jagamist seetõttu, et soovitakse tagada kohalikku osalust. Samas aga, kui lepingute väärtus on suurem kui mõnisada miljonit (eurot), väheneb nende rahvusvaheliste töövõtjate arv, kellel on võimalik pakkumist teha (nt vt Roumboutsos, 2020). Projekti koostamine Üks küsimus, mida rahvusvaheliste organisatsioonide avaldatud projekti koostamise suunised avaliku ja erasektori partnerluse jaoks veel ei käsitle, on 2018. aasta ITFi erainvesteeringute töörühma hiljutised soovitused, mis puudutavad avaliku ja erasektori partnerluse projektides sihipärast riskide vähendamist. Riskide vähendamise eesmärk on otseselt seotud probleemiga, mida käsitletakse eelnevalt punktis „Mis on avaliku ja erasektori partnerluse peamine probleem?“. Projekti etappide kombineerimine ning nõue projekti ellu viia õigeks ajaks ja eelarve piires suurendab avaliku ja erasektori partnerluse alla kuuluvate 67 töövõtjate ebakindlust. Nagu on välja toodud Kennedy jt (2018), saab avaliku sektori klient võtta mitmeid meetmeid, et pakkumuse protsessi käigus pakkujate ebakindlust vähendada. Algusjärgus tekkiva ebakindluse vähendamise üks eeltingimusi on rakendada sellist pakkumuste tegemise protsessi, mis soodustab kõige paremini kliendi ja pakkujate vahelist teabevahetust, st „konkurentsidialoogi“ protsessi. Toome siin kaks näidet. Üks näide on seotud projekti kavandamise tasemega. Praegu on avaliku ja erasektori partnerluses pakkujatele parimal juhul kättesaadav projektiülesanne, mis tähendab, et projekteerimisest on valmis umbes 15%. Pakkumise protsessi käigus peavad pakkujad ülejäänud projekti väga väikese aja jooksul välja töötama, kuna on võimalus, et nad võivad pakkumisest ilma jääda. Soovitame avaliku sektori kliendil teha kättesaadavaks kõiki kulusid sisaldava võrdlusprojekti, milles on lubatud teatud vabadus juhtudel, kus avaliku ja erasektori partnerluse pakkujad võivad paremini hakkama saada või pakkuda välja alternatiivseid lahendusi, ja eeldatud või soovitud juhul ka kõigi hangitud lubadega detailprojekti. Teine näide on konkurentsidialoogi käigus avaliku ja erasektori partnerluse pakkujatega ühiselt riskide maandamine. See võimaldab kliendil välja selgitada, kes suudab millist riski kõige parema hinnaga leevendada või juhtida, vähendades seega kogu projekti riskikulu. Seejärel saab avaliku sektori klient langetada teadlikke otsuseid selle osas, millised kulud konkreetsete riskide üle kandmisega kaasnevad ja kas teatud riske saab kõige paremini maandada avaliku sektori siseselt. Nende meetmete võtmisega väheneb avaliku ja erasektori partnerluse kulu ilma, et see avaldaks halba mõju selle mudeli tõhususe stiimulitele, st et hinna ja kvaliteedi suhe paraneb. Lepingute haldus Lepingu elluviimise etapiga kaasnevad teistsugused probleemid. Ehkki heade tavade kokkuvõtted on kõigile kättesaadavad (https://managingppp.gihub.org/), on avaliku ja erasektori partnerlusega seonduv peamine probleem lepingute osas uute läbirääkimiste pidamine. Seda esineb eriti areneva majandusega riikides või riikides, kus avaliku ja erasektori partnerluse elluviimise ja juhtimise osas puuduvad kogemused. Avaliku ja erasektori partnerluse lepingud kestavad harilikult mitukümmend aastat. Nii pika aja jooksul esineb tõenäoliselt ettenägematuid sündmusi, mille tõttu on tõenäoliselt vaja lepinguid uuesti läbi rääkida. Ennetavalt on vaja välja töötada poliitikaraamistik nende uute läbirääkimiste korraldamiseks, tagamaks, et nende tulemusel ei vähene avaliku ja erasektori partnerluse hinna ja kvaliteedi suhe märkimisväärselt aja jooksul. ITF (2017) on uute läbirääkimiste kohta avaldanud põhjaliku ülevaate ja soovitused ning soovitame avaliku ja erasektori partnerluse uute läbirääkimiste raamistiku alusena kasutada seda dokumenti. Muuhulgas on soovitatav kehtestada avaliku ja erasektori partnerluse vahekohtunik või reguleeriv organ. Kaks peamist punkti olid, et uued läbirääkimised peaksid olema lubatud vaid erandjuhtudel ja et sõltumatu organi ülesanne peaks olema määrata, millal on avaliku ja erasektori partnerluse uued läbirääkimised õigustatud. Teine elluviimise etapiga seonduv murekoht on teabe jagamine. Üks oluline aspekt on näiteks liiklusvoogusid puudutava teabe jagamine, mida võib olla vaja riikliku transpordimudeli koostamiseks vajaliku teabe saamiseks, külgnevate maanteeprojektide tasuvuse hindamiseks jms. Kuna erasektori klient peab vastama vaid lepingus sätestatud teabenõuetele, on Eestis oluline kaaluda, millist teavet tuleks esitada poliitiliste otsuste langetamiseks. See aitab luua võrdsemaid võimalusi juhuks, kui projekti elluviimise etapis tekib uute läbirääkimiste vajadus. Selle küsimusega tegelemiseks saab lähtepunktina kasutada Maailmapanga juhiseid avaliku ja erasektori partnerluse lepinguliste sätete, eriti avaldamist ja konfidentsiaalsust puudutavate sätete kohta (WBG, 2019). 68 2.5. Kasutajate käitumise ja ühistranspordi poliitika suunamine Rahvusvaheline Transpordifoorum (ITF) vaatas üle Eesti linnade reisijateveo hetkeseisu ja peamised liikuvuse suundumused. Selles analüüsiti praegust kütuse ja sõidukite maksustamise korda, ühistranspordi korraldust ja hinnakujundust ning linnaplaneerimist. Siin punktis tuuakse välja Eesti peamised probleemid ja esitatakse ITFi analüüsi järeldused. Siin pakutakse välja omavahel seotud reformide kogumik, mis toetaks üleminekut säästvale ja vähese heitega transpordisüsteemile, mis on kooskõlas Eesti ambitsioonikate riiklike ja üleilmsete kliimamuutuste leevendamise eesmärkidega. Põhiprobleemid Transpordi kavandamise ja investeerimisotsuste eesmärk on suuresti olnud toimetulek erasõidukite kasvava arvuga, suurendades maanteede läbilaskevõimet ja pakkudes piisavalt parkimiskohti. On aga ohtralt tõendeid, et autokeskne kavandamine toob kaasa liikluse suurenemise (st tekitatakse nõudlust29) ning sellega ei vähene ei ummikud ega keskkonnaga seotud välismõjud (Standing Advisory Committee for Trunk Road Assessment [peamaanteede hindamise alaline nõuandekomitee, SACTRA, 1994]). Hoopis vastupidi, selline lähenemisviis soodustab arenduse hajutatust ja muudab sõidud pikemaks. Lisaks on sellel kahjulikke tagajärgi elukvaliteedile, tervisele, jaotusküsimustele ja kliimamuutustele. Eesti majandus on üks kõige transpordi- ja energiamahukamaid Euroopa Liidus. See on suuresti erasõidukite arvu kontrollimatu kasvu tulemus. Erasõidukite esikohale seadmine linnaplaneerimises on toonud ka kaasa ühistranspordi võimaluste liiga vähese väljatöötamise, mis omakorda rõhutab veelgi ruumilist ebavõrdsust. Maakasutuse ja transpordi kavade sidumata jätmise ja vähese kavandamise kontrolli tagajärjel tekkinud planeerimata valglinnastumine suurendab samuti juurdepääsetavuse probleeme. Jätkusuutlikuma transpordisüsteemi suunas liikumiseks peavad Eesti poliitikakujundajad vaatama üle Eesti liikuvuse poliitika ja transporditaristu investeeringute tagamaad. Liikluse suurenemisega toimetuleku asemel peaks rõhk olema autost sõltuvuse vähendamisel ja vähem kahjulike liikumisviiside soodustamisel. Selle lähenemisviisi muutuse jaoks on vaja pakkuda piisavaid ja võrdväärseid ligipääsuvõimalusi ühistranspordi, kõndimise ja rattasõidu kujul. Need muutused aitaksid märkimisväärselt leevendada kliimamuutusi ning vähendada õhusaastet ja sellega seotud tervisemõjusid. See transpordisektoris toimuv üleminek tekitab aga konflikti keskkonnaalaste ja sotsiaalsete eesmärkide vahel. On vaja välja selgitada sihtotstarbelist hüvitist vajavad rühmad veendumaks, et üksikisikud ja iseäranis kõige haavatavamad neist ei kannaks ülemääraseid kulusid. Järgmistes punktides tuuakse välja peamised takistused autodest sõltuvuse vähendamisel ja jätkusuutlikumate transpordiliikide edendamisel. Analüüsitakse kütuse ja sõidukite maksustamist, ühistranspordi korraldamist ja hinnakujundust ning linnaplaneerimist. Erinevate transpordiliikide ebaühtlane maksustamine soodustab autode kasutamist ja ei paku stiimuleid vähem saastavate autode valimiseks Maanteetransport on Eestis suur ja kasvava kasvuhoonegaaside (KHG) heite allikas. Sõiduautodel on Euroopa Liidu kõrgeim keskmine CO2 heite tase ja halvim kütusesäästlikkus (Euroopa Komisjon, 2016). Eestis ostetud uutel sõidukitel on Euroopa Liidu kõrgeim keskmine CO2 heitkoguste tase 132 grammi kilomeetri kohta võrreldes 2017. aasta ELi keskmine 118,5 grammiga kilomeetri kohta (EMP, 2018). Sõiduautosid omatakse Euroopa Liidu keskmisest enam ning sõidukid on ELi keskmisest vanemad ja suuremad. 69 See tuleneb suuresti madalast ja ebajärjekindlast sõidukite maksustamise tasemest. Eestis puuduvad sõidukite maksud peale raske kaubaveokite liiklusmaksu ja madala fikseeritud sõiduki registreerimistasu. Mootorsõidukite maksustamine moodustab vaid 2,5% keskkonnamaksu tuludest, mis jääb tunduvalt alla OECD keskmisele 24,5% (OECD, 2017). Eestis ei koguta erasõidukite kasutustasusid ei riigi ega linnade tasemel. Eestis on kehtestatud aktsiis kõigile transpordikütustele peale biokütuste. Vaatamata aktsiisitõusudele ei ole autode heitkogused märgatavalt vähenenud (EEA, 2017). Nagu enamikus OECD riikides, maksustatakse bensiini kõrgema määraga kui diislit, ehkki diiselkütus põhjustab rohkem CO2 heiteid kui sama hulk bensiini ja selle kasutamine isegi uusimates mootorites toodab rohkem kohalikku õhusaastet, sealhulgas lämmastikoksiidi (NOx) ja tahkeid osakesi (PM). 2020. aasta esimeses kvartalis oli bensiini aktsiis 0,563 eurot liitri kohta ja diiselkütuse aktsiis 0,493 eurot liitri kohta. 1. mail 2020 otsustati aga Eestis ühe Covid- 19 kriisi ja selle majanduslike mõjudega toimetuleku meetmena vähendada diiselkütuse aktsiisi 25% võrra 0,372 eurole liitri kohta kaheks aastaks. Keskkonnamõjusid arvestades pole ühtegi head põhjust eelistada maksustamisel diiselkütust bensiinile (Van Dender, 2019). Madalama määra eesmärk on vähendada ärilise transporditeenuse ehk vahendusteenuse maksu. Tegelikult on aga tõhusam maksustada lõpptooteid. Mõnedes liikmesriikides kasutusel olev osaline diiselkütuse maksusoodustuse süsteem on sobilikum lähenemisviis, millega välditakse sõiduautode turu moonutamist. Joonis 5. Diiselkütuse ja bensiini aktsiisid Euroopa Liidu liikmesriikides (mai, 2020) 900 Diesel 800 Petrol 700 Euros per 1000 litres of road fuel 600 500 400 300 200 100 0 Allikas: Euroopa Keskkonnaamet, https://www.eea.europa.eu/data-and-maps/daviz/road-fuel-excise-duties- 6#tab-chart_1. Tasuta ühistransport ei ole rahaliselt jätkusuutlik ning see pole toonud kaasa muudatust transpordiliikide eelistustes. Tallinna linnas kehtestati 2013. aastal tasuta ühistransport (lahter 1). 2018. aasta juulis laiendati seda kogu riigile. Viieteistkümnest maakonnast üksteist on nõustunud pakkuma kõigile tasuta ühistransporti. Neis omavalitsustes, kus skeemist loobuti, tuleb endiselt pakkuda tasuta bussiga ühistransporditeenust kõigile alla 19-aastastele ja üle 63-aastastele isikutele. Eesti valitsus asutas bussiteenuste osutamiseks 70 piirkondlikud ühistranspordikeskused (tuntud ka lühendi ÜTK all), mis tegutsevad MTÜdena. Riik toetab ka bussiliinide ühendamist, uute sõidukite tellimist ja teenuste parandamist. Mõnedel liinidel ei pakuta tasuta sõidu võimalust, eriti neil, mis ületavad maakonnapiire. Seda seetõttu, et mõned ÜKTd – Lääne-Viru, Harju, Rapla ja Pärnu – on otsustanud kõigile isikutele tasuta bussitransporti mitte pakkuda. Kui maakond otsustab tasuta süsteemis mitte osaleda, ei jää ta mitte ainult ilma riigieelarvest eraldatud täiendavatest rahalistest vahenditest, vaid peab ka maksma transpordi lisakontsessioonide eest. Näiteks teatas Harjumaa ühistranspordikeskus (Põhja-Eesti ÜKT), et mõnel liinil suurenes sõitjate arv kuni 60% pärast seda, kui kehtestati nõue pakkuda tasuta ühistransporti kõigile 0– 19-aastastele ja vanematele kui 63-aastastele isikutele. Seda põhjustas osaliselt ka üleminek kommertsliinidelt, mis varasemalt paralleelselt töötasid. Uued lisateenused ei ole aga piisavad, et üha suureneva nõudlusega sammu pidada. Ka pikamaa- ja rahvusvahelistel liinidel tegutsevatelt ärilise bussiteenuse osutajatelt on nõutud, et nad osutaksid tasuta teenust eelkooliealistele lastele ja mõnele puuetega inimeste rühmadele. Need teenuseosutajad pakuvad kvaliteetseid bussiteenuseid, mida rahastatakse iseseisvalt piletimüügi kaudu. Lisaks haldavad äriliste teenuste osutajad bussijaamu ja piletimüügisüsteemi. Ärilise bussiteenuse osutajad ei saa aga valitsuselt selle sotsiaalteenuse osutamise eest mingit hüvitist. Eelkooliealistele lastele ja puuetega inimestele tasuta teenuste pakkumine on asjakohane poliitiline sekkumine. Puudub aga igasugune põhjendatud alus kohustada ärilise transporditeenuse osutajaid osutama tasuta teenuseid ilma hüvitiseta olukorras, kus riik laialdaselt bussi- ja rongiteenuseid subsideerib. Tekstikast 1. Tallinna tasuta ühistransport 2013. aastal kehtestati Tallinnas registreeritud ja makse maksvatele elanikele tasuta ühistransport. Poliitika eesmärk oli leevendada ummikuid ja reostust, vähendada ebavõrdsust ja edendada säästvamaid liikumisviise. Tallinna ühistranspordi käimas hoidmise suurenenud netokulu (suurenes 50 miljonilt eurolt 70 miljonile eurole) kaeti kasvanud kohaliku maksutuluga, mis tulenes osaliselt linna registreeritud elanike arvu suurenemisest. 2019. aastal oli Tallinnas 441 000 registreeritud elanikku, 2012. aastal aga 416 000 elanikku (Tallinn, 2019). Ränne pärines ümberkaudsetest omavalitsustest, mis sellest maksutulust ilma jäid. Kuna tasuta ühistransport kehtib vaid registreeritud Tallinna elanikele, ei lahenda see linna lähedal elavate pendelrändes osalevate inimeste probleeme. Selle mõõdetud mõju transpordiliikide jagunemisele on väga väike ning kõigis sissetulekugruppides on viimasel seitsmel aastal toimunud pidev nihe isikliku sõiduauto kasutamise suunas. Cats, Susilo ja Reimal (2016) leidsid, et Tallinnas suurenes ühistransporti autodele eelistatavate inimeste arv 8%, kuid samal ajal suurenes autosõidu keskmine pikkus 31% võrra, mis viitab autode rohkemale kasutamine. Tallinna tasuta ühistranspordi kavandamises tehtud vead pärsivad selle võimalikke eelised: vähem kui 50% sõitjatest valideerib regulaarselt oma piletit. See tähendab, et piletite valideerimisel saadud andmed sõitmise kohta on tegelikust kasutusest märkimisväärselt madalamad. Tallinna tasuta ühistranspordi tulevane rahaline elujõulisus on küsitav. Elanike arvu suurenemine andis esialgu täiendavat tulu, et kompenseerida süsteemi käimas hoidmisega seotud suurenenud netokulusid. Väheneva elanikkonnaga väikeses riigis on elanike arvu märkimisväärne suurenemine siiski ebatõenäoline. Seetõttu jääb ühistranspordi maksutulu suhteliselt püsivale tasemele, piirates ühistranspordi tulevaste investeeringute võimalusi. 71 On leitud, et tasuta ühistranspordi poliitika on suurendanud liikuvust maapiirkonnas elavate eestlaste seas, kes moodustavad kolmandiku kogu riigi rahvaarvust ning on üldiselt vanemad ja madalama sissetulekuga. Kõigil elanikel pole aga juurdepääsu ühistranspordile ja üldiselt pole süsteem autodest sõltuvust vähendanud. Täheldatud sõitjate arvu suurenemine on sageli tingitud soovimatust transpordiliigi eelistuse muutusest jalakäijate või rattaga sõitjate seas või see tuleneb juba ühistransporti kasutanud elanike suurenevast nõudlusest. Proost (2017) väidab, et tegevuspuudujäägi kasvades ja ühistranspordivõrkudesse investeerimise võime vähenedes võivad madalad ühistranspordi hinnad tuua paradoksaalselt kaasa hoopis ühistranspordist eemaldumise, kuna väheste investeeringute mõjul väheneb kvaliteet. Sellest vaatenurgast lähtudes on tasuta ühistranspordi pakkumisest parem hoida piletihindade taset piisavalt kõrgena, et teha investeeringuid läbilaskevõime ja teenuse kvaliteedi parandamiseks. Kui seda süsteemi säilitatakse, muutub selle rahastamine üha keerulisemaks, kuna täiendava kapitali ja parema kvaliteedi nõudlus suureneb samuti. Lisaks on süsteem äärmiselt haavatav eelarvekärbetele, kui poliitilised prioriteedid muutuvad. Sellest lähtuvalt on väga oluline töötada välja strateegia piletihindade uuesti kehtestamiseks, et tagada süsteemi pikaajalist rahalist jätkusuutlikkust ja seda, et teenuse kvaliteet aja jooksul ei vähene. Transpordiliikide vahelise integratsiooni puudumine õõnestab ühelt transpordiliigilt teisele ülemineku eesmärkide saavutamist ja teenuste tõhusat pakkumist Ühistranspordi marsruutide ja teenuseosutajate vaheline kooskõlastamine põhineb tavaliselt mitteametlikel läbirääkimistel ÜTKde, omavalitsuste ja Eesti peamise raudtee-ettevõtja Elroni vahel. Mõned ÜTKd arvestavad kohalike bussiliinide sõiduplaanide paikapanekul raudteegraafikuid, kuid enamikul juhtudel puudub transpordiliikide vaheline kooskõlastamine. Liinidevahelised ümberistumised on sageli ebamugavad ja peatuste vahel on tihti pikk vahemaa. Integreeritud piletimüügi puudumine peegeldab transpordiliikide vahelise kooskõlastamise puudumist. See on eriti suur probleem pealinna piirkonnas, kus Tallinna ja Harjumaa vahel reisib iga päev pea 120 000 pendelrändajat, kes vajavad eraldi pileteid. Erinevate maakondade piletisüsteemide vahel on samuti erinevusi, kuna mõned piirkonnad pakuvad tasuta ühistransporti, teised aga mitte. Maakondades, kus on jätkuvalt kehtestatud piletihinnad, on mõnedes määratud tariifid tsoonipõhiselt, samas kui teistes sõltub hind läbitud vahemaast. Selleks, et muuta ühistransporti kasutajate jaoks mugavamaks ja seega autosõiduga konkurentsivõimelisemaks, tuleb töötada välja kooskõlastatum lähenemisviis ning lõpuks kogu riigis kehtiv integreeritud ühistranspordi piletisüsteem. See aitab täita ka maapiirkondade elanike vajadusi. Investeeringute puudumise tõttu ei kasutata olemasolevate raudteepõhiste teenuste potentsiaali täielikult ära. Alates 2014. aastast on rongireisijate arv kasvanud. Elroni andmete kohaselt kasvas ajavahemikus 2014– 2018 reisijate arv koguni 50% võrra30. Teatud ajavahemikes oli mõnedel liinidel liiga vähe ronge, et suurenenud nõudlusega toime tulla. See tõi kaasa selliseid meetmeid nagu jalgrataste reisirongidele toomise piirang 2019. aasta suvel. Kiirus on teine probleem: rongid suudavad liikuda kiirusega 160 km/h, kuid taristu piirangute tõttu on tegelik kiirus kuni 135 km/h. Mõnel liinil, näiteks Tallinna ja Tartu vahel, saab rongiga endiselt liikuda kiiremini kui auto või bussiga. Praegused plaanid paralleelse maantee läbilaskevõime suurendamiseks võivad seda märkimisväärselt muuta ja vähendada raudteeteenuste konkurentsivõimet. Suurem osa Eesti raudteevõrgustikust töötab diiselkütusel ning vaid pealinna ümbruses sõitvad linnalähirongid põhinevad elektril. Praegu põhineb 1219 raudteesüsteemi kilomeetrist vaid 132 elektril. Diiselmootoriga rongid tekitavad oluliselt õhusaastet ja müra. 72 Kohaliku juurdepääsetavuse parandamiseks ei ole otstarbekas rajada Rail Balticu trassile piirkondlikke jaamu. Eesti kavatseb 2030. aastaks rajada Rail Balticu trassi 213 km pikkusele lõigule 11 piirkondlikku jaama. See tähendab, et lisaks kiirrongidele, mille maksimaalne projekteeritud kiirus on kuni 249 kilomeetrit tunnis, saavad Rail Balticul sõita ka kohalikud rongid kiirusega kuni 200 kilomeetrit tunnis. Arvestades Rail Balticu asukohta on oht, et kavandatavad jaamad jäävad piisava nõudluse tekitamiseks vastavatest piirkondadest liiga kaugele. Isegi kui võtta arvesse ühendusbusside teenuse loomist ja ettepanekut praegune 1520 mm raudteeühendus kasutuselt kõrvaldada, ei ole see tõhus viis kohaliku ligipääsetavuse parandamiseks. Uute jaamade kulu, mis on praegu hinnanguliselt iga jaama kohta 2 miljonit eurot, ei kaetaks kinnitatud Rail Balticu projekti rahadest. Eesti saab taotleda kaasrahastust Euroopa Liidult, ent Eesti peab sellesse siiski ka ise panustama. Praegu eeldatakse, et rahastus tuleb süsinikdioksiidi heitkoguse ühikute müügist ja seda toetab Euroopa Liit või riigieelarve. Neid vahendeid saaks aga kasutada ära teistes kulutõhusamates investeeringutes. Eesti peaks ümber hindama vajaduse lisada Rail Balticu trassile piirkondlikke peatusi ja viima läbi kavandatud jaamade asukoha kulude ja tulude täiendava süvaanalüüsi. Linnatranspordi poliitika on endiselt suunatud autodele Praegune Eesti linna- ja transpordiplaneerimise praktika keskendub endiselt autodele ja erasõidukite osakaal transpordiliikide seas kasvab jätkuvalt. Tallinn on pendelrände mahu osas esikohal: iga päev sõidab linna umbes 80 000 inimest ja enamik neist sõitudest tehakse autoga. Tallinnas ja Harjumaal on sõidukite aastane koguliiklus (miljon sõidukilomeetrit) 18 aastaga kasvanud ligikaudu 2,5 korda (SUMP, 2019). Selle tulemusel põhjustavad Tallinn ja selle lähipiirkonnad umbes 50% kogu Eesti transpordi heitkogustest. Poliitiline reform on hädavajalik, kui soovitakse vähendada autode liigse kasutamisega seotud negatiivseid välismõjusid. Joonis 6 illustreerib reisijateveo põhjustatud CO2 heitkoguseid Eestis. Joonis 6. CO2 heitkoguse maht kogutonnides reisijateveo liigi kaupa CO2 tonni aastas 120 000 100 000 80 000 60 000 Other Cities 40 000 Tallinn 20 000 0 Car Bus Motor 2/3 wheelers Märge: numbrid on umbkaudsed hinnangud, mis on saadud ITFi üleilmse linnamudeli (2019) põhjal. Allikas: ITF (2019). 73 Tänavaäärsete ja autoparklate parkimiskohtade hinnakujundus: linnapiirkondade parkimise maksumus on oluline tegur, mille põhjal otsustatakse, kas konkreetsesse kohta autoga sõita. Mõnedes Eesti linnades (eriti Tallinnas ja Tartus) on kesklinna piirkonnas kehtestatud võrdlemisi kõrged parkimistasud. Siiski on vaid piiratud arv parkimiskohtadest linnade kontrolli all. Tallinnas näiteks on kolmetsooniline süsteem, milles linn haldab vaid umbes 5800 parkimiskohta tasulistes parklates ja tasulistes tänavaäärsetes kohtades. Samas on tuhandeid parkimiskohti eraparklates, mis on harilikult odavamad. Siiani pole püütud eraparklate hinda kontrollida erinevalt paljudest teistest linnadest, kus neid näiteks maksustatakse. Linnaäärsete parkimiskohtade tulu läheb otse üldeelarvesse ilma, et seda oleks võimalik suunata hoopis transporti või linnaruumi parandamisse. Paljudes teistes maailma linnades eraldatakse aga suurendatud parkimistasudest saadud tulu teiste transpordiliikide atraktiivsuse parandamiseks. Parkimiseeskirjad: suur hulk eraparklaid ja nõue uusarenduste planeerimisel tagada lisaparkimiskohtade olemasolu vähendab avalike parkimiskohtade eest suure tasu nõudmise mõju. Kõigis Eesti linnades on kehtestatud nõue, et arendajad peavad uusarendustes tagama minimaalse parkimiskohtade arvu. Need kohalikud ehituseeskirjad tulenevad tavaliselt (mittekohustuslikest) riiklikest projekteerimisstandarditest ja ehitusseadustiku üldistest juhenditest. Eeskirjad, millega sätestatakse parkimiskohtade tagamise miinimumnõuded, toetavad liiga suure parkimiskohtade arvu loomist ja lisavad ebavajalike uute parkimiskohtade maksumuse uute elamute hinnale. See toob kaasa väärtusliku maa liigtarbimise, samas kui parkimisega seotud lisakulude tõttu ei ole majanduslikult otstarbekas arendada taskukohasemaid elamispindu. Tallinn on juba teatanud oma säästva linnalise liikumiskeskkonna kavas, et kavatseb kesklinnas kaotada parkimiskohtade miinimumnõuded. Seda peaksid aga tegema ka teised riigi linnapiirkonnad. Linnapiirkondade teepinna jaotus soosib erasõidukeid: eraautode suureneva osakaalu tõttu muudetakse üha rohkem haljasalasid ja avalikke kohti parklateks. See mõjutab negatiivselt linna inimsõbralikkust ning inimeste tervist ja elukvaliteeti. Riigi tasandil kuuluvad kõndimise ja rattasõidu osakaalu suurendamise eesmärgid juba mitmesse strateegiasse. Kohalikud omavalitsused aga vastutavad säästlike liikumisviiside osakaalu suurendamise eest. Eelkõige on kohalike omavalitsuste vastutusalas jalgrattateede taristu pakkumine ja linnaruumi paremaks muutmine. Enamikus linnades on aga rattateede kavandamine halvasti korraldatud ja isegi kui jalgrattastrateegia on kehtestatud, on väljatöötatud strateegiad ja nende elluviimise vastuolus. Sarnaseid tähelepanekuid on tehtud ka jalakäijaid soosiva poliitikaga seoses. Tallinn võttis esimese Eesti linnana 2017. aasta sügisel vastu jalgrattastrateegia. Tartu viis oma esimese jalgrattastrateegia lõpule 2019. aasta jaanuaris ja alustas 2019. aasta juunis rattajagamissüsteemi juurutamist, mis on väidetavalt olnud väga edukas. Seda tehti aga samal ajal kui võeti vastu vastuoluline poliitika luua uusi ja laiemaid sõiduteid autodele ja Tartus jätkati tasuta parkimiskohtade pakkumisega. Muuhulgas avati 2019. aastal kesklinnas uus tasuta parkla. Kokkuvõttes on säästvate transpordiliikide osakaalu suurendamise jõupingutusi õõnestanud muud sekkumised, mis muudavad auto kasutamise mugavamaks ja atraktiivsemaks. Jalakäijad ja jalgratturid on linnaliikluses väga haavatavad. Jalakäijate surmaoht on Eestis palju suurem kui hea ohutusega riikides: Eesti jalakäijate suremus on kolm korda suurem kui Soomes (Pratelli, 2013). Teehoolduses pööratakse jalakäijate olukorrale vähe tähelepanu ning katendid on sageli halvas seisus, eriti talvel. Kõnniteede hoolduses puudub ühtne lähenemisviis: iga kõrvalasuva krundi omanik vastutab ise jalgteelõigu hooldamise eest. Seetõttu on katete hooldus talvel sageli ebaühtlane ning jalakäijad võivad kukkuda või puutuda kokku takistustega. Maakasutuse ja transpordi kavandamise vähene integreerimine soodustab valglinnastumist: valglinnastumine on alates 2000. aastate algusest ja keskpaigast oluliselt suurenenud paralleelselt 74 erasõidukite kasutamise järsu kasvuga. Eesti iseseisvumise järgne maade erastamine on viinud planeerimata vähese tihedusega arenguni, kuna reformiprotsessis ei täpsustatud tihedusnõudeid. Arvukad tööstusharud kolisid Tallinna kesklinnast väljapoole, kus kinnisvara hinnad olid madalad. Tallinna äärealadele ehitatud kaubanduskeskused muutusid tavapäraseks nähtuseks ja suurendasid sõltuvust isiklikest sõiduautodest. Need arengud ei kuulunud ruumilise planeerimise strateegiasse ja neid ei integreeritud ühegi transpordikava ega poliitikaga. Paljudes linnades on kontroll arenduste üle endiselt nõrk. Sellest tulenevalt elavad paljud inimesed töökohtadest kaugel ja pole nendega ühistranspordi kaudu hästi ühendatud. Ühistranspordi puudujäägid ja põhiteenuste (nagu koolid või meditsiinikeskused) puudumine äärelinnades on panustanud autodest sõltuvusse Tallinna ja selle äärelinnade vahel reisimisel. Peamine probleem on, et Eestis pole selgeid seoseid linnaplaneerimise ja transpordipoliitika vahel. Rahandusministeerium on peamine organ, mis vastutab piirkondliku ja linnaarengu kavandamise ja kooskõlastamise eest riiklikul tasandil, kuid puuduvad piirkondlikud eeskirjad, mille kohaselt peaksid uusarenduste arendajad tagama kohustusliku ühenduse ühistranspordiga nii linnapiirkonnas kui sellest väljaspool. Paljudel riigi omavalitsustel puudub terviklik arengukava ja neil pole täielikku ülevaadet käimasolevatest arengutest (nt elektrooniline andmebaas). Lisaks ei saa nad kehtestada arendajatele konkreetseid eeskirju seoses ühistranspordi tiheduse või lähedusega. Reformi valdkonnad Järgnevalt on toodud välja poliitikavahendid, mida Eesti valitsus ja kohalikud omavalitsused saavad kasutada säästvamatele transpordisüsteemidele ülemineku hõlbustamiseks. Lisaks antakse ülevaade nende meetmete tõenäolise tõhususe kohta ning peamised viisid, kuidas poliitika kujundamine nende tõhusust mõjutab. Lõpetuseks tuuakse välja nende meetmete võimalik sünergia ja negatiivne koostoime. Kütusesäästlikkuse parandamiseks võtta vastu erinev sõiduki ostu või omamise maksumäär Esmajärjekorras tuleks kehtestada stiimulid puhaste ja energiatõhusate autode ostuks, et võidelda vastu praegusele erasõidukite heitkoguste suurenemise suundumusele. Selle saavutamiseks võib rakendada erinevat ostu- või registreerimise maksumäära või erinevat liikluse maksumäära. Mõlemad maksuvormid võivad julgustada inimesi soetama kulutõhusamaid ja vähemate heitkogustega sõidukeid. Uute sõidukite ostumaks avaldaks ilmselt sõidukite seisukorrale kõige suuremat mõju, kuna tarbijad on ostuhinna suhtes tundlikumad. Nende maksude tõhusus oleneb suurel määra nende ülesehitusest. Senised kogemused näitavad, et kõige tõhusamad on maksumäära ja CO2 heitekoguste lineaarsel ja pideval suhtel põhinevad maksusüsteemid. Selle peamine alternatiiv, kus sõidukeid liigitatakse erinevatesse heitemäärade vahemikesse, kusjuures madalamat maksumäära rakendatakse madalamate heitekogustega vahemikele, ei ole nii tõhus, kuna stiimulite mõju on katkendlik. See tähendab, et tootjal pole stiimulit heitkoguste rohkemaks vähendamiseks, välja arvatud juhu kui selle tulemusel liigitatakse sõiduk madalama maksumääraga vahemikku. Sageli nähakse selle puudujäägi tulemusel sõidukite heitkoguste langetamist sellisele tasemele, mis jääb täpselt iga maksuvahemiku ülemmäärast allapoole. Teine võimalus on kombineerida ostumaksu tagasimakse või soodustusega kütusesäästlikuma sõiduki ostu korral. Sellele viidatakse kui „maksuparanduse programmile“. Prantsusmaa näite põhjal on näha, et maksuparanduse süsteemi ülesehitus mõjutab oluliselt selle tulemuslikkust ja eelarvet. Täpsemalt on olulisel kohal see, milline määr kehtestatakse nn pöördepunktina (punkt, mis määrab tõhususe taseme, alates millest pakutakse stiimuleid tulemuste parandamiseks). 75 Ükskõik millist süsteemi kasutada, tuleks maksuvahemikke (kui neid kasutatakse) ja määrasid regulaarselt ajakohastada, et maksu stimuleerivat mõju säilitada, kui keskmine heitkoguste tase paraneb. Eestisse imporditavatele kasutatud autodele erineva CO2 heitekogusest sõltuva maksumäära rakendamine võib vähendada vanemate autode suuremahulist importi (igal aastal imporditakse praegu umbes 30 000 sellist autot). See ei pruugi aga alternatiivina nii tõhus olla, kuna võib piirata väiksema sissetulekuga elanike võimet osta kütusesäästlikumat autot neile sobiliku hinnaga. Sellist reformi võib kritiseerida ka selle regressiivse iseloomu poolest, kuna selles maksustaks suurema määraga taskukohasemaid (st kasutatud) sõidukeid. Lisaks moodustavad kasutatud sõidukite puhul kütusekulud suure osa üldistest omamiskuludest ning kehtivad kõrged kütusemaksud pakuvad juba üsna tugevat stiimulit kütusesäästlikumate sõidukite eelistamiseks. Vanad halvasti hooldatud sõidukid panustavad heitkogustesse ebaproportsionaalselt palju ning kõigi sõidukite, sealhulgas kasutatud imporditud autode, esmase registreerimise minimaalse heitklassi kehtestamine võib aidata vanemate autode importi piirata. Kaaluda pikas plaanis sõiduautodele elektrooniliste vahemaapõhiste tasude kehtestamist Kütuse maksustamisel põhinevalt energiakeskselt lähenemisviisilt vahemaapõhistele transpordimaksudele üleminek on hädavajalik pikemas plaanis maanteetranspordisektoris stabiilse maksubaasi säilitamiseks. Maanteetranspordi süsinikdioksiidiheite vähendamine koos üha suurema alternatiivkütusel töötavate sõidukite leviku ja parema kütusesäästlikkusega õõnestab traditsioonilist maksubaasi, mis on paljudes Euroopa riikides juba nagunii surve all. Näiteks Sloveenias prognoositakse OECD ja ITFi ühisanalüüsis sõiduautode kütusetulu laekumise vähenemist 2050. aastaks 56% võrra võrreldes 2017. aasta tasemega31 (OECD/ITF 2019). Kuna maanteetranspordi kütustele rakendatava aktsiisi tulu moodustab Eesti kogu maksutulust 15%, tuleb kaaluda laiaulatuslikku transpordimaksureformi, et tulu kaitsta. See tähendab, et tuleb leida õige kombinatsioon läbitud vahemaade, sõidukite ja kütuse maksustamiseks. Ideaalis tuleks vahemaapõhised tasud kehtestada lühiajaliste taristu piirkulude alusel. Samuti on võimalik eristada vahemaapõhiseid tasusid vastavalt sõiduki heiteklassile. Kui vahemaapõhised tasud sõltuksid sõiduki omadustest, aitaksid need keskkonnakulusid arvesse võtta ja lahendada eelkõige õhusaastega seotud probleeme. Kütusemaksud võivad mängida olulist rolli keskkonnakulude arvessevõtmisel, kui nende tase seatakse vähemalt CO2 heite varihinna tasemele. Süsinikuhindade kõrgetasemeline komisjon soovitas suurendada varihindu vahemikult 37–74 eurot 2020. aastal vahemikku 72–144 eurot 2050. aastal, kõik 2017. aasta püsivhindades (High-Level Commission on Carbon Prices, 2017). Bensiiniaktsiis, mis on praegu 0,563 eurot liitri kohta, vastab varihinnale 244 eurot tonni CO2 kohta. Diiselkütuse aktsiis, mis oli 0,493 eurot liitri kohta ja mida vähendati 1. mail 2020 Covid-19 kriisile reageerimise meetmena 0,372 eurole liitri kohta, vastab varihinnale 184 eurot tonni CO2 kohta. Pikas perspektiivis võib teede ülekoormatusest saada suur probleem, eriti linnapiirkondades. Sel juhul pakuvad vahemaapõhised tasud võimalust ülekoormuse haldamiseks. Asukohal ja kellaajal põhinev arvestus seoses ummikutega võimaldab autojuhtidel muuta oma sõiduaega vastavalt kellaajale, selle asemel et maksta tee kasutamise eest. Linnapiirkondades tuleks täiendavaid tulusid kasutada ühistranspordi ja kergliiklusteede taristu investeeringute toetamiseks, et parandada üldiselt linnatranspordisüsteemide tõhusust. Maksustada diiselkütust bensiiniga võrreldes sama või isegi suurema määraga Diiselkütust tuleks maksustada vähemalt sama kõrgelt kui bensiini, kuna selle kasutamine põhjustab suuremaid negatiivseid välismõjusid. Organisatsiooni Transport and Environment andmetel oli bensiini ja diisli vaheline erinevus 0,07 eurot liitri kohta enne seda, kui diiselkütuse aktsiisi langetati 1. mail 2020 Covid-19 kriisile reageerimise meetmena 0,372 eurole liitri kohta, mis tähendab, et liiga vähe maksustatud diisli tõttu on kaotatud 41 miljonit eurot tulusid. Otsus diiselkütuse maksu ajutiselt langetada vähendab 76 valitsuse tulusid veelgi ning võib moonutada sõiduautode turgu ja see tuleb tühistada otsekohe, kui majanduslik olukord seda võimaldab. Eestis tuleks diiselkütuse maksu tõsta vähemalt bensiiniga samale tasemele. Selle reformi sotsiaalse vastuvõetavuse tagamiseks ja negatiivsete jaotusest tulenevate tagajärgede minimeerimiseks tuleks haavatavate inimrühmadele rakendada sihtotstarbelisi maksusoodustusi. Need peaksid aga kehtima teatud aja, pidades silmas mootorsõidukite piiratud eluiga. Taaskehtestada ühistranspordi piletihinnad Eestis tuleks töötada välja strateegia ühistranspordis piletihindade uuesti kasutuselevõtuks. See reform on vajalik tegevuspuudujääkide vähendamiseks ja ühistranspordivõrkudesse investeerimise võime suurendamiseks. Selle tegemiseks on vaja strateegilist lähenemisviisi ja tugevat poliitilist juhtimist. Piletihindade arvutamisel tuleb arvesse võtta tegevuskulude katmist ning piletihindade struktuur tuleks ehitada üles selliselt, et see toetaks turuosa ja teenusetaseme säilitamise ja suurendamise eesmärke. Ideaalis tuleks tulevases piletihindade poliitikas liikuda optimeeritud ja vahemaapõhise hinnastamise suunas. Täpsema aja- ja vahemaapõhise hinnamudeli rakendamine nii ühistranspordis kui maanteedel suurendaks oluliselt süsteemi tõhusust ja õiglust. Vahemaapõhisel ühistranspordi hinnastamisel on iga marsruut jaotatud erineva piletihinnaga etappideks ja igal etapil on selge piir. Seda peetakse piletihindade määramisel kõige õiglasemaks aluseks, kuna peegeldab kõige täpsemini teenuse osutamise kulusid. Arvestades, et inimesed on valmis pikemate reiside eest maksma, võimaldab vahemaapõhine hinnakujundus piletihinnas iga sõidu eest rohkem tarbija ülejääki arvesse võtta. Seetõttu saavutatakse tavaliselt suurem tulu kui fikseeritud piletihinnaga (Lipscombe, 2016). Vahemaapõhine hind võib aga kasutajates enne sõitu hinna osas ebakindlust tekitada. Nad võivad selle ebakindluse tõttu loobuda ühistranspordi kasutamisest ning see mõjutab negatiivselt madala sissetulekuga reisijaid. Lisaks on selle rakendamine keeruline, kuna on vaja keerukat tehnoloogiat. Tsoonipõhise piletihinna alternatiivi (olgu see siis võrgu- või marsruudipõhine) eelistatakse sageli põhjusel, et seda on lihtsam ja odavam rakendada ning kasutajatele selgitada. Tsoonipõhise süsteemi korral on võrk jagatud tsoonideks ja igas tsoonis kehtib kindel piletihind. Hinna määrab see, kui mitu tsooni reisija läbis. Selle nõrk külg on, et reisijad, kes ületavad lühikesel vahemaal kahe tsooni piiri, peavad maksma üsna suurt hinda, kuna tasuvad kahe tsooni eest. Seega tekitab ka see mudel mõningaid võrdsuse probleeme. Tõhus piletite valideerimise süsteem on mis tahes piletihinna kujundamise oluline element ja sellega peab kaasnema kinnipidamise tagamise süsteem, sealhulgas trahvid või muud karistused valideerimata sõitude eest. Need on hädavajalikud, et tagada piletihindadest suurel määral kinnipidamine ja saavutada piletihindade süsteemi tulu-eesmärke. Lisaks võivad usaldusväärsest valideerimismehhanismist saadud andmed olla hindamatu väärtusega transpordi kavandajate jaoks, võimaldades neil jälgida nõudluse tasemeid ja korrapärasid ning andes teavet teenuse osutamise muudatuste otsuste jaoks. Pakkuda sihtotstarbelisi toetusi ühistranspordi hindade taaskehtestamise ja autokasutajatele vahemaapõhiste tasude rakendamisega seotud negatiivsete võrdsusele avalduvate mõjude minimeerimiseks Pea kõigis piletihindade süsteemides sisalduvad soodushinnad teatud rühmadele. Nende soodustuste eesmärk on vältida olukorda, kus ühistranspordi hinnad on niivõrd kõrged, et madala sissetulekuga rühmad ei saa seda kasutada. Praktikas määrab soodustuse saamise kuulumine mõnda laia gruppi, kõige levinumalt õpilaste või vanemaealiste sekka. Neisse rühmadesse kuulumine ei ole aga üldjuhul tihedalt seotud rahaliste vajadustega. Teoreetiliselt eelistatum lähenemisviis on määrata soodustuse saamise kriteeriumid otseste rahaliste vajaduste, näiteks sissetuleku või leibkonna staatuse põhjal. Soodustuste paremast suunamisest saadud potentsiaalsed kasud peavad aga olema tasakaalus nende rakendamisega seotud kuludega. 77 Valitsused, kus on juba loodud süsteem asjaomastele kriteeriumitele vastavate rühmade tuvastamiseks, saavad väga lihtsalt ja praktiliselt ilma mingite kuludeta rakendada seda ka ühistranspordi piletihindade süsteemile. Näiteks Bogota linnas kasutatakse ühistranspordis soodushindade saamise õiguse kindlaksmääramiseks väljakujunenud sotsiaaltoetuste saajate valiku süsteemi (SISBEN) andmeid. SISBEN on stratifitseerimise vahend, mida Colombia riiklikud ja kohalikud omavalitsused kasutavad vee-, elektri- ja tervishoiutoetustega seotud programmide jaoks (ITF, 2017). Tundub, et Eestis on olemas hea alus elanike sissetulekute ja muude omaduste mõistmiseks, võimaldades teha kindlaks rühmad, mis peaksid sihtotstarbelisest toetussüsteemist kasu saama, ja riik võib olla võimeline seda lähenemisviisi kasutama. Kui aga hinnasoodustuse saajate väljaselgitamise lähenemisviis on liiga jäik, on võimalik tõlgendada, et see on vastuolus laiemate teatud transpordiliikidele ülemineku eesmärkidega. Liiklejatasud, nagu kõik teised maksustamisvahendid, avaldavad samuti mõju sotsiaalsele võrdsusele. Neil on proportsionaalselt suurem mõju madalama sissetulekuga inimestele (mis muudab need mõnevõrra regressiivseks), kuid mitte rohkem kui sellistel alternatiividel nagu kütusemaks. Suurem osa haavatavatest madala sissetulekuga leibkondadest Eestis kasutab halva kütusekuluga vanu sõidukeid, mistõttu on kütusemaksu asendamine elektriautode kilomeetritasuga kasulik, kui saadud tulu jääb püsivaks. Kui valitsus soovib rohkem teha, on täiendavad võimalused ristsubsideerimine või sihtotstarbelised toetused. Ummikmaksud toovad sõltuvalt skeemi ülesehitusest tõenäoliselt kaasa kõige rohkem regressiivseid tagajärgi, kuna nende mõju võib leibkondade asukoha põhiselt varieeruda ning neid rakendatakse tavaliselt lisaks olemasolevatele maksudele ja tasudele, selle asemel et asendada need olemasolevate transpordimaksudega. Autost sõltuvad madala sissetulekuga leibkonnad võivad ummikumaksu tõttu sissetulekus kaotada (Cain ja Jones, 2008), kuid arvestades nende väikest arvu, oleks sihtotstarbelised toetused palju tõhusam viis probleemi lahendamiseks kui maksureformi üldiste eeliste kõrvalejätmine. Euroopa linnades puudub enamikul haavatavatel madala sissetulekuga leibkondadel juurdepääs autole ja kui maksutulu suunatakse ühistransporti, saavad paljud ummikumaksudest kasu. On leitud, et üldised ummikumaksud ei põhjusta rohkem probleeme kui muud transpordisektori maksud ja tasud (Eliasson, 2016; ITF, 2018). Ühistranspordi ja elektrooniliste vahemaapõhistee autode maanteemaksude juurutamine vajab teabe selget ja püsivat edasiandmist. Avalikkusele tuleb selgitada nii hinnapoliitika muutuse ajendeid kui muutust ennast. Avalikkus peab mõistma, et praegu kasutustasude katmiseks kasutatavad vahendid suunatakse kvaliteedi parandamisse ja võrgu vajalikku laiendamisse. Tänu sellele saab piletimüügist saadud tulu kasutada tegevuskulude katmiseks32. Nii saab Eestis asetada arutelude keskmesse ühistranspordi parema usaldusväärsuse, regulaarsuse, sõiduaja ja sageduse. Keskendumine rollile, mida suurem maksutulu mängib süsteemi katvuse toetamises ja võimalikus laiendamises ning paremas teenuse kvaliteedis, aitab piletihindade reforme vastuvõetavamaks muuta. Sama loogikat tuleks järgida ka siis, kui tutvustatakse autodele rakendatavaid elektroonilisi vahemaapõhiseid tasusid, selgitades, et madalama sissetulekuga kasutajad saavad sellest kasu (kui kütusemaksutulusid hüvitatakse, nagu välja pakuti) ja et uus süsteem tagab maanteetaristu kvaliteedi säilimise või parandamise. Suhtlusstrateegia peaks olema järjepidev ning sellega tuleks alustada varakult ja jätkata ka pärast piletihindade muutust. Üks ühistranspordi näide on Singapur, kus hakati 2010. aastal minema üle integreerimata bussi ja rongi piletihindadelt integreeritud vahemaapõhisele süsteemile. Uue süsteemi edukaks rakendamiseks peeti hädavajalikuks teavituskampaaniaid, mis uue süsteemi kasutuselevõtuga kaasas käisid. Kampaania hõlmas raadiosaateid, rändetendusi busside ümberistumiskohtades, ajalehereklaame, postreid ja brošüüre (Lipscombe, 2016). Kampaania aitas inimestel uut piletihindade struktuuri mõista ja suurendas selle avalikku heakskiitu. 78 Võtta vastu integreeritud piletihindade süsteem ja parandada ühistranspordikeskuste vahelist kooskõlastust Kõiki ühistranspordiliike (rong, linnatransport, maapiirkondade bussiliinid) hõlmav ühine piletisüsteem tooks nii linna- kui ka maapiirkondade ühistranspordi kasutajatele märkimisväärset kasu. Ühistranspordi kasutuse soodustamise peamine strateegia on tagada, et piletisüsteem oleks atraktiivne ja kõigile kasutajatele arusaadav. Selle jaoks on vaja tagada, et piletisüsteem on sidus ja lihtne ning pileteid on mõistlik arv, võttes arvesse kasutajate vajadusi. Nende tulemuste saavutamise eelistatuim meetod on rakendada integreeritud piletimüügi- ja tariifipoliitikat, mis kehtib kogu piirkonna kõigis transpordiliikides. (Civitas, 2020) Selle reformi elluviimise osas on juba tehtud edusamme – majandusministeerium ja Tallinna linn arutavad integreeritud ühistranspordi piletisüsteemi loomist. Plaani kohaselt vastutab rakendamise eest Tallinna piirkonna liikuvusnõukogu, mis loodi majandus- ja taristuministri ning Tallinna linnapea allkirjastatud koostöömemorandumi alusel 2019. aasta oktoobris. Lisaks vastutab nõukogu linnapiirkonna liikuvuse tulevase kavandamise põhimõtete kehtestamise eest. Tõenäoliselt tagab suurima edu lihtne ja kasutajasõbralik integreeritud piletisüsteem. Kiipkaardisüsteemide kasutuselevõtuks standardse arhitektuuri (näiteks Integrated Transport Smartcard Organisation) kasutuselevõtt võib oluliselt vähendada nii kulusid kui ka kasutuselevõtuks kuluvat aega, vähendades samas märkimisväärselt ka teenuse osutamisega seotud riske. Teine oluline aspekt edu tagamisel on saavutada teenuseosutajatega varajane kokkulepe piletitulu jaotamise osas. See võib olla eriti keeruline, kui piletisüsteem hõlmab nii linna- kui maapiirkondi. (Civitas, 2020) Liikuvusnõukogul on kindel institutsiooniline ülesehitus, mis toetab integreeritud piletimüügi rakendamist. Võib eeldada, et selle reformi edukas elluviimine Tallinna piirkonnas loob kindla aluse aja jooksul integreeritud piletimüügi kasutuselevõtuks ka teistes Eesti piirkondades. Parandada kontsessiooni ülesehitust, et süsteem töötaks tõhusamalt Teenuste tõhus hankimine aitab hindu paremini kontrollida. Enamikus piirkondades on küll juba bussiteenuste konkurentsipõhine hankimine hästi juurutatud, kuid kontsessioonisüsteemi ülesehituse muutmine aitaks teenuse kvaliteeti ning hinna ja kvaliteedi suhet märkimisväärselt parandada. Peamine samm oleks enne pakkumismenetluse algatamist hoolikalt hinnata teenuse osutamise hinda, et edastada teenuseosutajatele asjakohaseid hinnasignaale. Praegu osutavad teenuseosutajad teenuseid brutomaksumuse lepingute alusel, milles sätestatakse, et teenuseosutajale makstakse teatud perioodil teenuse osutamise eest kindlat summat teenuse kvaliteedist sõltumata. Selliste lepingute puhul ei ole teenuseosutajad väga motiveeritud teenust hästi osutama, kuna neile ei pakuta kvaliteedi suurendamise eest hüvesid. Eestis võiks kaaluda teenuseosutajatele kord kvartalis hea kvaliteedi eest boonuste maksmist, et neil oleks põhjust oma sooritust parandada. Need käiksid käsikäes karistustega minimaalse soorituse nõuete mittetäitmise eest, mis on praegu lepingutes sätestatud. Selle süsteemi eduka kasutamise näited on Oslo-Akershus ja London (Transport for London). Need kvaliteedi parandamise stiimulid võiksid põhineda erinevatel parameetritel: ooteaeg suure sagedusega marsruutidel, ajaline täpsus vähese sagedusega marsruutidel, ooteaeg, sõidukite puhtus ja üldine kasutajate rahulolu. Transport for Londonil on hästi väljatöötatud ja tõhus trahvide ning boonuste süsteem (TfL, n.d.1). Seirepraktika täiustamine oleks samuti üks viis, millega tagada, et teenuseosutajad peavad kvaliteedinõuetest kinni. Praegu jälgivad ÜKTd teenuseosutajate sooritust, samas kui Maanteeamet kontrollib regulaarselt kasutatavate sõidukite tehnilist seisukorda. Ühistranspordi eest vastutavad asutused võiksid ka kaaluda anonüümsete kliendiuuringute läbiviimist, kus sõltumatud töövõtjad peegeldavad tarbijate käitumist, et juhtide ja sõidukite kvaliteeti objektiivselt jälgida. Veendumaks, et 79 teenuseosutajad lepingus sätestatud tingimustest kinni peavad ja läbisõitu õigesti registreerivad, on ühtlasi oluline viia regulaarselt läbi lepingu täitmise auditeid. Teenuse ohutuse jälgimiseks on hädavajalik ka kohustada teenuseosutajaid teavitama bussi kasutamisel juhtunud õnnetustest. Keskenduda olemasolevate raudteeteenuste parandamisele Eesti peaks keskenduma olemasoleva raudteetaristu taastamisele ja rongide sageduse suurendamisele suuremate Eesti linnade (Tallinn, Tartu, Pärnu ja Narva) vahel. Sõidukiiruse suurendamine nõuab raudteeülesõidukohtade kõrvaldamist ning investeeringuid olemasolevasse taristusse ja signaalsüsteemidesse. Eelkõige piiravad läbilaskevõimet mõned Tallinna lähedal asuvad raudteevõrgu osad. Sellega tegelemine võib võimaldada teenuseosutajatel pakkuda lisaks praegustele rongidele ka kiirronge. Teine oluline investeering on täiendava veeremi hankimine, et suurendada linnadevaheliste sõitude teenuse osutamist ja mugavust ning konkureerida paremini bussiteenustega, mis on väga mugavad. Suure nõudlusega liinide elektrifitseerimine vähendab oluliselt CO2 heitkoguseid, müra ja kütusekulusid, suurendades samal ajal rongide kiirust. Laiema teenuse osutamise strateegia osana tuleks võtta ka teisi meetmeid, näiteks raudteejaamade lähedusse uusarenduste kavandamine ja ühendusvedude parandamine. Viia läbi lisahinnanguid, et selgitada välja Rail Balticu piirkondlike peatuste majanduslikku otstarbekust ja nende integreerimist kohalike transporditeenustega Eestis tuleks viia läbi ühe või kõigi Rail Balticu projekti kuuluvate jaamade eeldatavate kulude ja tulude üksikasjalikum analüüs. Selles tuleks võtta arvesse investeeringu suhtelist kasu võrreldes olemasolevatesse raudteeliinidesse tehtavate alternatiivsete investeeringutega. Lisahinnangus peaks sisalduma lähte- ja sihtkoha maatriksid, transpordiliigi valiku mudelid, maakasutuse kavandamine ja kooskõlastatud integreerimine teiste transpordiliikidega. Lisaks tuleks võtta arvesse, kui suure tõenäosusega suudavad jaamade läheduses olevad kinnisvaraarendused nende teenuste järele piisavat nõudlust tekitada. Ühtlasi on oluline hinnata Rail Balticu ja olemasoleva võrgu vaheliste ühenduste loomise otstarbekust. Reformida linnade parkimispoliitikat Parkimistasud peaksid varieeruma sõltuvalt ühistranspordi kättesaadavusest, kusjuures hästi kaetud piirkondades peaksid olema suuremad hinnad ja lühem maksimaalse peatumise aeg. Tõhusad parkimishinnad ennetavad võimsuspiiri saavutamist ja reisimist, tagades samas suure täituvuse. Selle jaoks on vaja dünaamilist hinnastamist, kus parkimistasud varieeruvad ajas ja ruumis, kasutades ümbritsevate piirkondade hõivatuse teavet. Linnades tuleks vältida pikaajalise parkimise soodustusi: Litman (2018) soovitab kehtestada tunnihinnast vähemalt kuus korda suuremad päevahinnad ja päevahinnast vähemalt 20 korda suuremad kuuhinnad. Tulu tuleks vähemalt osaliselt kasutada selleks, et parandada ja edendada alternatiive, kuna sellised seosed suurendavad eeldatavasti avalikkuse toetust poliitikareformide vastu ja panustavad transpordiliikide eelistuste muutusesse. Haavatavatele rühmadele tuleks pakkuda hüvitist sihtotstarbeliste lisameetmetega. Tööandja makstava parkimishinna mahaarvamine töötajate maksustatavast tulust tuleks kõrvaldada, et eemaldada stiimul autoga sõitmiseks. Teine võimalus parkimiskulude nähtavamaks muutmiseks ja autosõidu vähendamiseks on julgustada tööandjaid, kes rendivad oma töötajatele parkimiskohti, pakkuma neile hoopis parkimise hüvitust, st parkimistoetuse sularaha ekvivalenti. Parkimisreformi tuleks laiendada ka planeerimissüsteemile. Paljudes jurisdiktsioonides peavad arendajad tagama minimaalse arvu parkimiskohti. Sellised nõuded on aga vastuolus nii kaasamise kui ka keskkonnasäästlikkuse eesmärkidega. Parkimiskohtade miinimumnõuded võivad põhjustada liigset 80 maakasutust (Brueckner ja Franco, 2017), suurendada eluasemekulusid, kuna põhjustavad arendajatele lisakulusid (Litman, 2020), ja motiveerida inimesi autot kasutama. Seega oleks eelistatum kehtestada maksimaalne, mitte minimaalne arv parkimiskohti, kuna see toetab jätkusuutlike ja õiglaste arenduste loomist. Tallinn liigub juba parkimise miinimumnõuete kaotamise suunas, nagu on välja toodud Tallinna ja lähipiirkonna liikuvuskavas (SUMP 2019). Seda tuleb rakendada kõikides linnapiirkondades üle Eesti. Jaotada ümber teepind ning arendada jalgratta- ja kõnniteede taristut Linna piiratud avaliku tänavaruumi kavandamise otsustes tuleb kasutajate seas esikohale seada jalakäijad. See tähendab, et teekasutajad tuleb järjestada järgmiselt: jalakäijad, jalgratturid, ühistranspordi kasutajad, kaubavedajad, taksojuhid ja erasõidukid (ITDP, 2018). Selle hierarhia alusel teepinna ümberjaotamine koos nende transpordiliikide rohkemate ja paremate taristu investeeringutega on olulisel kohal, kui soovitatakse muuta nende suhtelist konkurentsivõimet autodega, pidades silmas mugavust, ohutust ja sõiduaega. Samuti on hädavajalik kõndimise ja rattasõidu tingimuste parandamine, mille asjakohane näide on hiljutised arengud Pariisis. Pariisis on 2014. aastast rakendanud kava „Paris Express Bike Network“ ning seal on jaotatud suur osa sõiduteede pinnast ja parkimiskohtadest ümber säästlikumatele liikumisviisidele. Alates 2014. aastast on linn laiendanud oma rattateede taristut 43% võrra, saavutades 2020. aastal kokku 1000 km rattateesid. Paljud rattateed on sõiduteedest füüsiliselt eraldatud, parandades jalgratturite mugavust ja turvalisust. Lissabonis on olnud palju edu jalakäijate tingimuste parandamisel. Linnas võeti vastu jalakäijate juurdepääsetavust käsitlev kava, et tegeleda ülekäiguradade ja jalgteede halva kvaliteediga, mis takistasid märkimisväärselt vanemaealiste elanike ligipääsu erinevatele teenustele. Kavas hinnati olukorda, tuvastati aspektid, mida on võimalik muuta, esitati üldised suunised (igapäevaste otsuste langetamiseks) ja loetleti üles 100 tegevust, mis tuli teha ära 2017. aasta lõpuks. Selle rahaliseks toetamiseks langetas linnavolikogu lihtsa otsuse: igal aastal investeeritakse 3% riigiehituste eelarvest jalakäijate juurdepääsetavusse (ITF, 2019). Integreerida maakasutust transpordi kavandamisega Maakasutuse kavandamisel tuleks eelistada hea ühistranspordivõrguga asukohti, kui püütakse välja selgitada, kuhu luua uusi elamute ja kontorite arendusi. See parandab olemasoleva ühistranspordi tõhusust ja aitab vähendada autodest sõltuvust. Kasutada tuleks juurdepääsetavusnäitajaid, et tuvastada kohti, mis on uusarenduste jaoks sobilikud. Üks tuntumaid näiteid on ühistranspordi juurdepääsetavuse taseme näitaja (Public Transport Accessibility Level, PTAL), mida kasutab Transport for London (TfL) (TfL, nd2). PTALi hinnangud näitavad, kui lähedal on teatud koht ühistranspordi peatusele. PTALi kasutatakse kogu Londonis, et anda selgeid suuniseid tulevaste arenduste sobilike tihedusevahemike kohta: mida parem on ühistranspordile ligipääs, seda tihedamalt tuleks seda ala arendada. Tasub uurida väärtuse hõlmamise mehhanisme ja arendustasusid kui vahendeid uusarenduste piirkonnas transporditaristu rahastamiseks. Näiteks Suurbritannias on süsteem, milles arendajatelt nõutakse vajalike transpordiga seotud taristu paranduste eest maksmist. Maksu suurus määratakse kohalike omavalitsustega peetavate läbirääkimiste teel ja see põhineb osaliselt hinnangul selle kohta, kuidas uusarendus mõjutab olemasolevat ühistransporti ja teedevõrke. Teises lähenemisviisis võib suure taristuprojekti osaliseks või täielikuks rahastamiseks nõuda maksu olemasolevatelt ettevõtetelt, mis sellest kõige enam kasu saavad. Ka seda lähenemisviisi kasutatakse Ühendkuningriigis. Näiteks teenis Transport for London Londoni metroo ulatusliku laiendusprojekti Crossraili jaoks vajalikust 14,5 miljardist naelsterlingist 4,1 miljardit olemasolevatele arendustele rakendatud maksu Business Rate Supplements kaudu (Mayor of London, n.d.). 81 2.6. Raudtee kaubavedu ja taristu Siin punktis uuritakse, kuidas raudtee kaubavedu ja taristut Eestis hallatakse. Analüüsis keskendutakse raudteesektori praegusele seisukorrale ja hiljutisele arengule ning olemasolevatele eesmärkidele ja edasistele plaanidele. Selles kontekstis käsitletakse ka turustruktuuri ja asutuste ülesehitust. Selgitatakse välja valdkonna peamised probleemid, millele järgnevad mitmed soovitused. Eesti raudteedel toimub praegu suur üleminek, mis hõlmab nõudluse päritolu, transporditavate kaubatüüpide ja raudteesüsteemi enese muutusi. Mahukas projekt Rail Baltic on Eesti suurim käimasolev transpordi ja taristuga seotud projekt. Sellel on pikaajaline mõju, mis ulatub kaugemale kaubaveo ja taristu haldamisest. Seega käsitletakse seda ka aruande teistes peatükkides. Raudteedel osutatavaid reisijateveoteenuseid käsitletakse peamiselt ühistranspordi peatükis. Siin mainitakse teiste sektorite reforme, mis mõjutavad raudteel kaubavedu (nt maanteetransport, sadamad või hanked), kuid neid kirjeldatakse täpsemalt neid puudutavates punktides. Põhiprobleemid Eesti raudteede iseärasused eristavad neid teistest ELi raudteesüsteemidest. Raudteed on peamiselt pühendatud kaubaveoteenustele, rongid on palju pikemad ja raskemad kui mujal Euroopas ning sõidavad laiarööpmelisel raudteel. Raudteel on kaubaveo osakaal tunduvalt suurem kui teistes Euroopa riikides (vt Tabel 2). Need on ühised jooned teiste Balti riikidega. Raudteesüsteem oli kuni viimase ajani vertikaalselt integreeritud ja kasumlik ning taristu hooldamise ja uuendamise kulud olid täielikult kaetud. Eesti sadamad, täpsemalt Muuga, toimisid juurdepääsupunktina Venemaale, mis on endiselt raudteekaubaveo peamine lähte- ja sihtkoht. Raudteesüsteemi põhiomadused, nimelt gabariit, taristu, veerem ja nende vastavad tehnilised standardid on samad, mis teistes endistes Nõukogude Liidu maades. Seega on see piirkond olnud Eesti kaubaraudteele loomulik turg nii transpordi kui ka veeremi hooldamise, uuendamise või rentimise osas. Tabel 2. Raudtee kaubaveo põhinäitajad, võrdlus teiste ELi riikidega Riigid Raudteetranspordi osakaal Keskmine koormus (t/km % 2018. aastal) (t/km rongkilomeetri kohta 2017. aastal) 82  Euroopa Liit – 28 riiki 17,3 - Bulgaaria 18,5 357 Tšehhi Vabariik 26,9 502 Taani 11,5 713 Saksamaa 17,8 417 Eesti 44,4 1508 Prantsusmaa 10,5 432 Horvaatia 20,1 549 Itaalia 13,6 484 Läti 74 1862 Leedu 66,7 1721 Ungari 32,4 - Holland 5,9 824 Austria 31,8 527 Poola 23,9 769 Rumeenia 30,2 909 Sloveenia 35,5 554 Slovakkia 32,9 684 Soome 27,3 720 Rootsi 30,2 659 Norra 15,2 511 Šveits 34,7 416 Allikas: kohandatud Eurostati andmetest (2019). See raudteemudel on viimase kümne aasta jooksul olnud pinge all (vt Joonis 7). Poliitiliste otsuste tõttu on Venemaa liikluse maht oluliselt vähenenud, seega toimus Eestis vahemikus 2006–2018 kõige järsem tegevuse langus (t/km) kogu Euroopa Liidus ning maht vähenes kolme neljandiku võrra. Osa sellest liiklusest suunati teistesse Balti riikidesse, kuid Venemaa arendab samuti oma juurdepääsusadamaid. Lisaks ei ühildu ELi määrused ja poliitika suures osas endise Eesti mudeliga, mis on maksimaalset kasumit püüdev Venemaa kaubaveole suunatud vertikaalselt integreeritud raudtee. ELi eesmärk on liberaalne, avatud juurdepääsuga ja ühine Euroopa (ELi) raudteeturg. ELi õigusaktide alusel peavad raudteetaristu ettevõtjad olema majanduslikult usaldusväärsed, kuid enamiku nende eesmärk ei ole mitte kasum, vaid majandusliku tõhususe laiemate eesmärkide saavutamine. See peegeldab reisijateveo esikohale seadmist kogu Euroopa Liidus, suurendades samas raudtee potentsiaali kaupade jätkusuutlikul vedamisel, muutes selle Euroopa rohelise kokkuleppe oluliseks elemendiks. 83  Joonis 7. Raudtee kaubaveo (t/km) suundumused Eestis, 2007–18 140 120 100 80 60 40 20 0 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 Estonia European Union - 28 countries Latvia Lithuania Allikas: kohandatud Eurostati andmetest (2018). Üleminek suurte kaubakoguste transpordilt ida-lääne suunas ühendvedudele põhja-lõuna suunas Eesti ja teiste ELi riikide (välja arvatud ülejäänud Balti riikide) vahel puuduvad põhja- ja lõunasuunalised raudtee-kaubavood. Kaubaveod Euroopasse ja tagasi toimuvad veoautodega või meritsi (vt Joonis 8). Seetõttu sõltub põhja-lõuna suunas toimuvate ühendvedude arendamine suuresti Soome minevatest ja Soomest tulevatest kaubavoogudest ja Baltimaade vahelisest koostööst, mis on olnud nõrk. Traditsiooniliselt on Eesti ida-lääne liikluses konkureerinud Läti ja Leeduga. Sellest tulenevalt ei saa Balti riikide vahelisi piiriüleseid takistusi seletada üksnes tehniliste erinevustega (kuigi ka neid esineb, täpsemalt signaalsüsteem ja maksimaalne teljekoormus). Konkureerivad majanduslikud huvid on oluline põhjus. Pealegi on Baltimaade ja Kesk-Euroopa praeguse raudteesüsteemi gabariit ja muud erinevused oluline takistus raudteeühenduste edendamisel nende kahe piirkonna vahel, millest tuleneb Rail Balticu projekti vajadus. 84  Joonis 8. Rahvusvaheliste kaubavedude suhe riikide kaupa Eesti raudtee- ja maanteesektoris (2018) Rahvusvaheline raudtee (tonnides) Rahvusvaheline maantee (tonnides) Italy Netherlands Latvia Ukraine Poland Poland 3% 3% Latvia Ukraine 1% Kazakhsta 3% Latvia Kazakhstan 4% 4% n Lithuania 3% 3% 1% Lithuania 1% 7% 1% 7% Finland Lithuania 25% 7% Germany Belarus 7% 20% Sweden 8% Russian Russian Federation Federation 68% Other 16% countries 11% Latvia 16% Allikas: kohandatud Statistikaameti andmetest (2019). Sõltumatute Riikide Ühenduse (SRÜ) riigid jäävad Eesti jaoks oluliseks kaubavedude ja nendega seotud teenuste turuks, isegi kui mahud ei taastu kunagi 2007. aasta eelsele tasemele (Joonis 7). Liikluse järsku langust alates 2007. aastast kompenseeris osaliselt Venemaa klientidele suunatud vagunite rentimise ja renoveerimise äri arendamine. Isegi pärast Rail Balticu valmimist on suurem osa Eesti ja teiste Balti riikide raudteevõrkudest ja seadmetest endiselt suunatud sellele piirkonnale. Arvestades Eesti asukohta, jäävad võimalikud kaubavood SRÜ riikidesse ja sealt tagasi olulisele kohale ning see on ühendus Euroopaga põhja- lõuna suunas. See kehtib nii traditsiooniliste Kesk-Aasia ja Musta mere piirkonnaga ühenduste kui uue siiditeega seotud tulevase Kaug-Ida liikluse puhul. Raudteede maksustamise poliitika ei ole uute turutingimustega sammu pidanud Kogu raudteetaristu haldamine oli Eestis kuni viimase ajani eraomandis, kus seda juhiti kasumliku vertikaalselt integreeritud raudteena. Raudteevõrk läks riigi omandisse uuesti 2007. aastal. 2020. aastal kuulub väike osa avalikust avatud juurdepääsuga võrgust eraomandisse. Sellest eraldi liigub umbes pool raudteel transporditavatest tonnidest avaliku ligipääsuta liinil, mis kuulub ettevõttele Enefit Kaevandused. See on Eestis kahes riigisiseses elektrijaamas elektri tootmiseks vajalikku põlevkiviõli tootva ettevõtte Eesti Energia tütarettevõte. Riigile kuuluva raudteetaristu ettevõtja Eesti Raudtee (EVR) kasumiaruanne on tasakaalus. Selle riigitoetuste tase on Euroopa Liidus üks madalamaid (DG MOVE, 2019a) ja kaubaveo keskmised ligipääsutasud ühed kõrgeimad (vt Joonis 9). Juurdepääsu ja muude taristuteenuste tasud moodustavad Eestis suurema osakaalu tegevuskuludest (nii kauba kui ka reisijate jaoks) kui enamikus ELi riikides. See kõrge keskmine peegeldab raskeveo ülekaalukat, ehkki vähenenud osa. Taristukulud moodustavad Saksamaal 18% kaubaraudtee-ettevõtjate tuludest(Bundesnetzagentur, 2018), samas kui Eestis jäävad 85 need vahemikku 30–40%. Saksamaal moodustavad piletihinnad palju suurema osa tuludest kui Eestis. Taristukulude katmise tase on kahe riigi vahel üldiselt sarnane. Joonis 9. Kaubaveo raudteekasutustasud Euroopa Liidu riikide kaupa (2016) 20 18 Eurot rongikilomeetri kohta (keskmine) 16 14 12 10 8 6 4 2 0 Access charges freight (including mark-ups) Allikas: kohandatud Euroopa Komisjoni raudteeturu seirearuandest (DG MOVE, 2019a). Eesti teeb vahet erinevate kaubatüüpide tasude vahel. Näiteks makstakse siseriiklike või ELi konteinerrongide eest lisaks lühiajalistele lisakuludele juurdehindlust 0,57 eurot, teiste kaubarongide eest aga kuni 10,83 eurot. Ilma täieliku raudteehindade ülevaatuseta ei ole võimalik välja selgitada, kas raudteekasutustasude poliitikat tuleks optimeerida või mitte. Lisaks on oluline raudteekasutustasude rakendamise viis. Sidusrühmad kurdavad, et uute liinide või teenuste pakkumise tingimused ei ole piisavalt ühtlustatud ega prognoositavad. Konteineriliikluse suurendamiseks oleksid ajutise lahendusena tasude avaldamisest hoolimata peetavad läbirääkimised kahtlemata kahjulikud. Olemasoleva raudteevõrgu läbilaskevõime ja tulevaste nõuete erinevus Raudteetranspordi (ja maanteetranspordi) järsk vähenemine on põhjustanud süsteemi ülevõimsust, kuid uute marsruutide ja kaubavedude lisamiseks ning reisijateveo teenuste parandamiseks on vaja uuendada raudteevõrku ja veeremit. Euroopa Komisjoni riikide ülevaade (European Commission, 2019) ja transpordi hetkeprobleemide aruanne (DG MOVE, 2019b) toovad välja üleeuroopalise transpordivõrgu arengu puudusi ja üldisi transporditaristu puudujääke. Lisaks on taristu Maailmapanga logistiliste näitajate indeksis (LPI) Eesti madalaima punktisummaga alamindikaator. 86 Rail Balticu projekti äri, tegevuse, asutuste ja kohalikud komponendid on olulised Pärast tegevusega alustamist on Rail Balticu edu tagamisel ülimalt olulisel kohal juhtimise ja taristu halduse mudelid. Need mudelid mõjutavad projekti mitme elemendi kavandamist ja elluviimist, mille hulgas on hooldusteenused ja vastavad depood, liikluskorraldussüsteemid ja juhtimiskeskused, teenindusaegade jaotamine ja sujuv rongiliiklus kõigis kolmes Balti riigis. Kui Muuga sadama peaterminal välja arvata, ei ole pandud paika projektiga seotud kaubaterminalide täpsemat arvu ja omadusi, ehkki teiste variantide (nt Pärnu ja Soodevahe kuivsadam) osas on juba viidud läbi mitu tasuvusuuringut. Tegevusi ja raudteeteenuste osutamist puututavad otsused mõjutavad hooldusrajatiste arvu, omadusi ja asukohti. Hooldusrajatisi on juba kavandatud Tallinna lähedale ja Pärnusse, kuid puudub kogu Balti riike hõlmav üldine hooldusrajatiste kava. Veeremi soetamine või teenuste ja materjalide hankimine Rail Balticu haldamiseks ja hooldamiseks on veel üks valdkond, milles on vaja langetada olulisi otsuseid. See on oluline verstapost, kuna veeremiga seotud kulud on märkimisväärsed (RB et al., 2018) ning võivad mõjutada RB majanduslikku jätkusuutlikkust ja üldist elujõulisust. Koostöö kõigi Rail Balticus osalevate riikide – kolme Balti riigi, aga ka Soome ja Poola – vahel on nii ehituse kui tegevuse seisukohast ülimalt oluline. Kesk-Euroopaga sujuva raudteeliikluse saavutamisel on rohkem takistusi kui gabariidi erinevused. Poolas on Leedust erinev signaal- ja liikluskorraldussüsteem, elektrifitseerimissüsteem ja rongide pikkuse piirangud. Raudtee-kaubaveo edendamiseks ja muude takistuste ületamiseks vajalikud investeeringud jätkuvad ka pärast Balti riike ühendava pearaudtee ehituse lõppu. Piiriüleste probleemide minimeerimine nõuab taristuettevõtjate tihedat koostööd läbilaskevõime jaotamise osas ning andmete vahetamist nende, raudtee-ettevõtjate ja terminalihaldurite vahel. Niivõrd ulatuslik taristuprojekt võib seda koostööd toetada, ent sellesse tuleb kaasata kõik sidusrühmad, riigid ja raudtee-ettevõtted. Taristust enesest ei piisa. Selle projekti strateegiline olulisus ulatub bilansist kaugemale. See aitab suurendada Euroopa integratsiooni ning tugevdab Balti riikide vahelist majanduslikku, sotsiaalset ja kultuurilist vahetust, aitab ühiselt liikuda 2050. aastaks esimese kliimaneutraalse maailmajao saavutamise suunas ning panustab Euroopa raudteesüsteemide kaubanduslikku, tehnilisse ja operatiivsesse ühtlustamisse. Selle abil integreeritakse Euroopa turule oluline majandussektor. Need on pikaajalised ambitsioonid, mis moodustavad Rail Balticu tausta. Eesti kasvuhoonegaaside heitkogused on elaniku kohta ühed suurimad Euroopas Transpordisüsteem panustab Eesti kasvuhoonegaaside heitkoguste kõrgesse tasemesse suhteliselt vähe (vt Joonis 10), moodustades koguarvust ainult 11,7%. Euroopa Komisjon jõudis oma 2019. aasta riigiaruandes siiski järeldusele, et „Eesti transpordisüsteem on endiselt keskkonnavaenulik”, mille põhjus on kiire kasv ja suhteliselt kõrge heitkoguste tase SKP ühiku kohta. Eesti on transiitriik veoautodele, mis liiguvad Soomest teistesse sihtkohtadesse Euroopas. 2018. aastal läbis Eesti sadamaid üle poole miljoni välisriikidesse suundunud ja neist saabunud veoauto ja haagise ja see näitaja on sellest ajast alates kasvanud. Osa nende põhja-lõuna suunal liikuvate kaubavoogude üle viimine raudteele aitaks vähendada transpordisüsteemi panust kasvuhoonegaaside heitkogustesse. Lisaks on elektrifitseeritud vaid 11% raudteevõrgust, mis on madalaim näitaja Euroopa Liidus pärast Leedut ja Iirimaad. Selle tulemuse saavutamisele aitaks oluliselt kaasa ka raudteevõrgu ulatuslikum elektrifitseerimine. 87  Joonis 10. Kasvuhoonegaaside heitekogused (tonnides) elaniku kohta (2017) 20 18 16 14 12 10 8 6 4 2 0 European Union - 28… Croatia Denmark Malta Germany Austria Portugal Slovenia Latvia Sweden Luxembourg Poland Cyprus Slovakia Spain Greece Lithuania Norway France Hungary Romania Switzerland Netherlands Belgium Turkey Iceland Finland United Kingdom Italy Ireland Bulgaria Liechtenstein Estonia Czech Republic Allikas: kohandatud Eurostati ja EEA andmetest (2019). Reformi valdkonnad Võtta vastu Rail Balticu taristu haldamise ühise juhtimise mudel Rail Balticuga seonduvate piiriüleste probleemide vähendamisel ja selle koridori tegevuse optimeerimisel on olulisel kohal samade tegevuseeskirjade kehtestamine ja kogu piirkonnas ühise keele leidmine, et kasutada maksimaalselt ära uue taristu pakutavaid võimalusi. Samamoodi hõlbustab liikluskorralduse ja tegevuse juhtimise tsentraliseerimine rongide sujuvat liikumist koridoris ja väldib ülejääke. Sama kehtib taristu hoolduse ning sellega seotud seadmete ja depoode kohta. Nende ülesannete täitmiseks on endiselt vaja kohalikke töörühmi ja satelliidikeskusi, kuid ühise juhtimisraamistiku kehtestamisega on võimalik suurendada integreeritust ja mastaabisäästu. Muud ranget kooskõlastamist nõudvad aspektid on rongiaegade ehk liinimahu eraldamine ja taristu maksustamise põhimõtted. See muudab taristu pakkumise ärilises mõttes köitvamaks ja hõlbustab tegevusnõuete täitmist. Rahvusvaheline valitsusasutuste konsortsium, mis moodustab Rail Balticu, peaks hindama ja arendama ka võimalikke kaubaveo (ja reisijateveo) turge, et taristut ehitamise ajal ära kasutada. Kõige lihtsam viis eelnevalt kirjeldatud küsimuste osas vajalikku koostööd saavutada on luua Rail Balticu ühtne juhtimisorgan, mis tegutseb kõigis Balti riikides. Kui see osutub praktikas teostamatuks, tuleb kindlasti luua kindel koordineerimiskord ja seda alal hoida, et võtmeküsimustega tõhusalt tegeleda. Edendada koostööd ja piiriülest raudteekaubavedu enne Rail Balticut ja sellest väljaspool Üks näide on kombineeritud kaubarongi projekt „Amber train“, mis ulatub Leedust Eestini. Sedalaadi teenuste loomine enne Rail Balticu elluviimist võib anda olulisi kogemusi piiriüleste teenuste osutamisel ning edendada koostööd Balti riikide taristu haldajate, ettevõtjate ja teiste raudtee- või logistikavaldkonnas osalejate vahel. Selle teenusega saab katsetada ühtsete eeskirjade kehtestamist, piiriülese liikluse kitsaskohtade välja selgitamist ning kõigis Balti riikides kombineeritud rongiliikluse turu edendamist. Selliseid algatusi võiks laiendada, et need hõlmaksid ka piiriülese liikluse arendamist Eesti ja Poola vahel, mida praegu ei toimu. 88 Eesti ja Läti vahelised olemasolevad piiriülesed tõkked tulenevad pigem andmevahetuse ja tegevuse kooskõlastamise puudujääkidest kui tehnilistest erinevustest. Läti ja Eesti vahel liikuvad rongid veedavad piiril kaks kuni seitse tundi, mille sees on vedurivahetusele (umbes 1 tund ja 20 minutit), manöövervagunite vahetusele (kui vagunid lähevad erinevatesse sihtkohtadesse) ja paberimajandusele kuluv aeg. Saabuvate piiriüleste rongide ajastust puudutav teave on puudulik ja paljudel juhtudel ebausaldusväärne, tekitades ebakindlust ja vajadust määrata nende manöövritega toime tulemiseks ressursse, sh töötajaid ja jaamade rööpaid. Selle muutmiseks on vaja pigem kultuurilist, juhtimisalast ja ärimudeli muutust, mitte niivõrd raudteevõrkude vahelist täiuslikku tehnilist koostalitlusvõimet. Kaasata Poola ja Soome tihedalt Rail Balticu kasutuselevõttu ja tegevustesse, et tagada sujuvad piiriülesed üleminekud Rail Baltic ning nii Soome kui ka Poola vahelised üleminekud on taristu, tegevuse ja teenuse seisukohast ülimalt tähtsad nõudluse tekitamiseks ja projekti konkurentsivõime tagamiseks. Rail Balticu rakkerühm juba juhib ning kooskõlastab projekti elluviimist Eesti, Läti, Leedu, Poola ja Soome ministeeriumide vahel(European Commission, 2018). Lisaks on Soome ja Poola vaadelnud RB Rail AS juhtimisstruktuuri. Kooskõlastamine on vajalik ka siis, kui põhikoridor on käiku läinud. Suurem osa Rail Balticu kaubaliiklusest on transiit, st saadetised ei pärine Eestist ega saabu sinna, vaid läbivad seda (Ernst & Young, 2017). Suurt rolli mängib ühendus Soome ja Eesti vahel, kuna 29% Rail Balticu kaubaveo liiklusest (t/km) pärineb Soomest või läheb Soome. Tonnides mõõdetuna on kõige olulisemad vood SRÜ riikidest Kesk-Euroopasse (37,8% kogumahust). Põhjamere-Läänemere raudteekaubaveo koridor moodustab kooskõlastusplatvormi, mida tuleks maksimaalselt ära kasutada, et tugevdada taristuettevõtjate vahelist koostööd praeguses olukorras selliste põhiküsimuste osas nagu läbilaskevõime jaotamine, koostalitlusvõimeliste süsteemide juurutamine ja taristu arendamine (CORRIDOR, 2016; Council of the European Union, 2010). Kasutada Eesti positsiooni Rail Balticu liini terminalina, et suurendada veeremi rentimise ja sellega seotud teenuste kasvuvõimalusi Selleks, et Eestist saaks peamine veeremiga seotud teenuste osutamise asukoht, on vaja Rail Balticu ärimudelit, sellega seotud toiminguid ja raudteeteenuseid rohkem selgitada. Näiteks, kas toiminguid teeb peamiselt ühisettevõte, millel on oma depood, või osutab erinevatele teenuseosutajatele hooldust ja muid teenuseid kolmas isik? Rail Balticu turustruktuur mõjutab kahtlemata seda, kuidas neid teenuseid osutatakse ja mõnedel ettevõtetel on ettevalmistuste tegemiseks vaja selgemat pilti selle kohta, kuidas see turg välja hakkab nägema. Tugevdada ühendvedude toimimist ning ülejäänud võrgus kuivsadamate ja ühendveoterminalide arendamist Ühend- ja konteinerveod moodustavad Eestis kogu raudtee kaubaveo mahust 3%. Ent ühend- ja konteinerveo osakaal on kasvanud, samal ajal kui muud tüüpi kaubaveo osakaal on vähenenud (vt Joonis 11). Lisaks väheneb üle maailma nõudlus vedada raudteel teatud tüüpi masskaupu, mida on traditsiooniliselt raudtee kaudu transporditud (nt kivisüsi ja muud fossiilkütused). Seevastu kasutatakse üha enam konteinereid ja muid modulaarseid pakkesüsteeme. Raudteekaubaveo tulevik ja selle panus süsinikuneutraalse majanduse loomisse sõltuvad suuresti selle võimest kohaneda ja võtta üle osa ühendveoturust. Selle liikluse soodustamiseks on hädavajalik parandada ühendusi nii sadamate sees kui sadamate ja sisemaa vahel. Ühendveoterminalide loomine ja arendamine nii sadamates, kuid eriti sisemaal, on hädavajalik, et sedalaadi transporti võimaldada. Kuni 2018. aastani ei toimunud konteinerite siseriiklikku 89 raudteetransporti Eestis peaaegu üldse, kuid sellest ajast alates on see suurenenud. Arvestades riigi geograafilist asukohta ja suurust jääb see alati piiratud turuks, kuid kasvuruumi on. Sedalaadi taristu on üldiselt võrdlemisi madalate kuludega ning seda saab ellu viia järkjärgult. Üldiselt töötavad selle välja kas sadamad ise, raudtee-ettevõtjad või logistikaettevõtted või seda tehakse ühisettevõtetena. Üks näide on käimasolev projekt Operail kuivsadama arendamiseks Tartus (mis asendaks praeguse kesklinna terminali), samas on tehtud arvukaid ettepanekuid Rail Balticuga seotud eraterminalide rajamiseks. Neist viimane suurendaks kohalike ja riiklike osalejate ligipääsu sellele koridorile. Neid on vaja, kui soovitakse lisada väärtust transiitliiklusele, mis prognooside kohaselt moodustab Rail Balticu kaubavedudest enamiku. Valitsus peaks peamiselt aitama neid terminale kasutusele võtta, kooskõlastades nende heakskiidus osalevate erinevate avalike organite vastuseid ja eemaldades haldusalaseid takistusi, mitte niivõrd pakkuma otsest rahalist tuge. Joonis 11. Konteinerite raudteeveo suundumused võrreldes kõigi kaupadega (tonnides) 400% 350% 300% 250% 200% Container 150% All goods 100% 50% 0% 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 Märge: avalikus raudteevõrgus liikuv kaup. Allikas: kohandatud Statistikaameti andmetest (2019). Vaadata raudteetaristu tasusid regulaarselt üle, et need oleksid kooskõlas strateegiliste poliitiliste eesmärkidega Eestis on varasemalt kaetud kõiki raudteesüsteemi kulusid veotariifidega. Venemaalt pärit suhteliselt suure väärtusega masskaup, mida transporditi tõhusalt pikkade raskete rongidega, moodustas tulust suurema osa. Liikluse jaotus on Eestis küll muutunud, kuid masstoodete vedu võimaldab jätkuvalt suurel määral kulusid katta, praegu 70% (2016. aastal 90%). See näitaja on nüüd sarnane Saksamaa või Prantsusmaa tasemega, kus aga suurem osa tulust teenitakse reisijateveoga kiirrongidel. Taristu kasutamise tasude ülesehitus vaadati 2017. aastal üle, et suurendada eristust ja vähendada mõnede turgude tasusid tulenevalt maanteetranspordi, sh kodumaiste konteinerite jõulisest konkurentsist. Paljud sidusrühmad soovivad, et selles suunas tehtaks rohkemaid edasiarenguid ja kõrvaldataks mõned erinevused. Samal ajal tuleb hoolitseda raudteetaristu bilansi tasakaalu säilitamise eest (kooskõlas soovitustega muuta maanteede rahastamine üldeelarvest vähem sõltuvaks). Taristutasude edasise reformi jaoks teabe saamiseks tuleks hinnata praeguse liikluse ja tulevase liikluse, mida valitsus plaanib maanteedelt raudteele üle kanda, hindade elastsust. Lisaks tuleks hinnata, kui oluline on hind võrreldes muude maantee- ja raudteetranspordi omadustega. Poliitika rakendamiseks oleks vaja toetusi, kui see analüüs toob välja, et 90 valitsuse soovitud ümbersuunamise jaoks peaksid rongiteenuse osutajad kehtestama tasusid, mis jäävad taristu kasutamise lühiajalistest piirkuludest allapoole. Läbipaistvam ja vähem riskantne oleks pakkuda sellist toetust rongiteenuse osutajatele otse, mitte raudteetaristu ettevõtjaga sõlmitava iga-aastase eelarvekokkuleppe kaudu. Sama kehtib ka reisijateveo puhul. Luua avatud juurdepääsuga võrgu jaoks ühine taristuettevõte, et hõlbustada integreeritud süsteemi haldust ning vähendada ettevõtjate ja maksumaksjate jaoks ülejääke ja tehingukulusid Eestis on kaks taristuettevõtet, mis vastutavad avaliku sektori avatud juurdepääsuga võrgu eri osade eest. Selle põhjus on sektoris toimunud arengud alates 1990. aastatest. Suuremat osa võrgust (87%) haldab riigile kuuluv Eesti Raudtee, ülejäänud 13% aga eraõiguslik Edelaraudtee. Üleminek ühele taristuettevõttele lihtsustaks süsteemi ja parandaks selle üldist toimimist. Integreerida raudtee kavandamine laiemasse transpordikavasse, et maksimeerida transpordisüsteemi tõhusust ja tulemuslikkust Raudtee on erinevatest komponentidest ja teenuse tüüpidest koosnev süsteem, millel on erinevad vajadused ja omadused. Integreeritud raudteestrateegias tuleb arvestada mitme valdkonnaga: taristu, veerem, tegevuse juhtimine ning puutekohad teiste sektorite ja transpordiliikidega. Ehkki majandus- ja kommunikatsiooniministeeriumis on praegu loodud raudteeosakond, on selle pädevus piiratud. Näiteks ei ole see otseselt seotud Rail Balticu projektiga. Punktis 2.1 „Asutuste struktuur“ soovitatakse ministeeriumi juurde luua tõhustatud strateegilise poliitika osakond, mille alla kuuluks tehniliste ressursside keskus. Tuleks hoolitseda selle eest, et see osakond suudab koostöös raudteeosakonnaga kujundada raudteesektori jaoks integreeritud strateegilist poliitikat. Ajakohastada parema riikliku ja piirkondliku ühenduvuse saavutamiseks olemasolevat raudteetaristut Rail Balticu (RB) ühine nägemus ja olemasoleva võrgu ajakohastamine aitab vältida üleliiasust, maksimeerides nii investeeringute kui ka nendega seotud riiklike kulutuste eeliseid. Rail Baltic on teadlikult kavandatud nii, et see ei läbiks asulaid. Selle eesmärk on parandada Baltikumisisese ühenduvuse kvaliteeti ja Balti riikide lõimumist ülejäänud Euroopaga. Algne eesmärk ja praegune kavandatud plaan kasutada Rail Balticut ka piirkondlike teenuste osutamiseks on aga omavahel vastuolus. Kesklinnu ja linnu läbiva olemasoleva võrgu ajakohastamine on kõige tõhusam viis piirkondliku ühenduvuse, juurdepääsetavuse ja sidususe parandamiseks. Sellised plaanid on koostatud ja hõlmavad selliseid sekkumisi nagu signaalsüsteemi täiustamine, ülesõidukohtade eemaldamine, liinide lisamine ülekoormatud kitsaskohtadesse, liinide elektrifitseerimine ja uue veeremi hankimine. Kõik need võivad kaasa aidata raudteeteenuste energiatõhususe, kiiruse, mugavuse ja sageduse suurendamisele kogu Eestis. Teenuste taseme parandamine on vajalik, kui soovitakse parandada raudtee osakaalu transpordiliikide seas ning aidata kaasa säästvama transpordisüsteemi loomise eesmärgi saavutamisele. Ühe või kahe lisajaama lisamine Rail Balticule (nt Raplas) võimaldaks otsest siduda seda uut koridori olemasolevate võrkudega, tekitades nende vahel sünergia. Tuleks säilitada kooskõla strateegiliste eesmärkide ja nende saavutamiseks kavandatud vahendite vahel. 2.7. Autoveo reguleerimine See jaotis sisaldab Eesti autoveosektori analüüsi. Siin esitatud tähelepanekute eesmärk on toetada Eesti valitsust uue transpordi ja liikuvuse arengukava koostamisel. 91 Analüüsi tegemisel oli abi Majandus- ja Kommunikatsiooniministeeriumi (MKM) esindajatega ning transpordiettevõtjate, vedajate ja ekspediitorite ühendustega korraldatud intervjuudest, samuti huvirühmi kaasavatest töötubadest. Uuring keskendus neljale valdkonnale: autoveosektori reguleerimine ja edasised arenguplaanid, autoveo maksustamine ja tasud, väga suure veovõimega sõidukite (ingl high capacity vehicle) kasutuselevõtus peituvad võimalused ning viisid, kuidas autoveo meetmed võivad parandada maanteetaristu varade haldust. Põhiprobleemid Tõhus autoveosektor on Eesti majandusarengu mootor. Selle sektori tõhusus on transpordipoliitika kujundamisel oluline teema. Eurostati andmetel moodustas autovedu 2017. aastal 77% kogu Euroopa Liidu maismaa-kaubaveost. Eestis moodustas see sektor peaaegu 58% kogu riigisisesest kaubaveost, mis näitab, kuivõrd olulisel kohal on see Eesti majanduses. Autoveo väliskulud kannab Eestis kogukond tervikuna, kuna autoveo maksustamisest saadav tulu seda täielikult ei kata. Selle taustal on autoveopoliitika peamised küsimused seotud autoveosektori üldise tõhususega, autoveo maksustamisega ning taristu- ja väliskulude katmise ulatusega. Näib kasvavat sellise autoveo osatähtsus, mille korral kasutatakse alla 3,5-tonnise täismassiga sõidukeid Rendi või tasu eest korraldatava kaubaveo puhul, milleks kasutatakse üle 3,5-tonnise täismassiga sõidukeid, on Eestis vaja eraldi luba. Sellistele vedudele kohaldatakse määrusi, mis käsitlevad juurdepääsu autoveo-ettevõtja tegevusalale, ent sõidukitele, mille täismass on väiksem, neid ei kohaldata. Alates 2012. aastast pole vahet tehtud riigisiseste ja rahvusvaheliste vedude autojuhtide vahel. Seetõttu kehtib 3,5 tonni piir nii riigisisestele kui ka rahvusvahelistele vedudele, kuigi EL-i määrused lubavad riigisiseste vedude puhul lähtuda madalamast piirmäärast. Eurostati andmed ei sisalda piisavalt teavet, et hinnata, kuidas alla 3,5-tonnise täismassiga sõidukitega korraldatava autoveo osatähtsus edaspidi võiks muutuda. Küll aga on Eesti Rahvusvaheliste Autovedajate Assotsiatsioon (ERAA) öelnud, et seda tüüpi autoveo osatähtsus kasvab. See on kooskõlas teistes EL-i riikides täheldatud suundumustega. Uues EL-i liikuvuspaketis (Euroopa Parlament, 2020), mida Euroopa Parlament ja Euroopa Nõukogu ei ole veel heaks kiitnud, on sellist kergemate sõidukitega seotud kasvu arvesse võetud, tagamaks võrdsemad võimalused erisuguseid sõidukeid kasutavate ettevõtjate vahel. Euroopa autoveoturule juurdepääsu ning sõidu- ja puhkeaja reegleid laiendatakse rahvusvahelistes vedudes kasutatavatele furgoonautodele (väikesed tarbesõidukid, mille täismass on üle 2,5 tonni), kusjuures turujärelevalve puhul on üleminekuaeg 21 kuud, ent sõidumeerikute ja puhkeaja reeglite puhul kestab see 2026. aasta keskpaigani. Riigisisestele vedudele on liikmesriikidel siiski lubatud kehtestada teistsugused massitasemed. Eesti autoveo-ettevõtjate konkurentsivõime on surve all Eurostati andmetel on Eestisse suunduva ja sealt lähtuva autoveo üldine turuosa vaid 43%. Peamised konkurendid on Läti, Leedu ja Poola ettevõtjad. ERAA kinnitab, et Eestis kehtestatud suhteliselt suur kütuseaktsiis ja õiguslikud piirangud teistest riikidest pärit väiksemate tööjõukuludega sõidukijuhtide kasutamisele on olulised tegurid, mis konkurentsivõimet kahandavad. Samuti tunti muret Eesti ametivõimude väidetavalt piiratud võimekuse üle tagada välismaiste ettevõtjate nõuetekohane käitumine. Eesti ametnikud seavad aga mitu neist väidetest kahtluse alla. Näiteks märgivad nad, et rahvusvaheliselt tegutsevad Eesti ettevõtjad saavad väljastpoolt Eestit osta odavamat kütust. Samuti märgivad nad, et 92 suurem osa kiiruseületamise ja muude rikkumiste eest välismaiste ettevõtete sõidukijuhtidele tehtud trahve makstakse ilma täitemeetmeid võtmata. Vastupidi, nad viitavad hoopis sellele, et konkureerivate riikide ettevõtete madalamad maksukohustuse määrad võivad olla konkurentsieelise olulisem allikas. Ka Eesti autoveosektori struktuur võib ettevõtjate konkurentsivõimet piirata. Nimelt on Eestis suhteliselt palju keskmise suurusega ettevõtjaid, seevastu konkureerivates tööstusharudes on liigutud pigem selles suunas, et turul oleks eelkõige suuri ettevõtjaid, kes suudaksid saavutada mastaabisäästu, ning ühtlasi väikesi ettevõtjaid, kes oleksid paindlikud ja tuleksid toime nišiturgudel. Uus EL-i liikuvuspakett (Euroopa Parlament, 2020) võib seada Eesti transpordiettevõtjad silmitsi probleemiga, et nende tegevuse tõhusus väheneb ja kulud suurenevad. Uus liikuvuspakett piirab veelgi kabotaaži, kehtestab autojuhtide tasustamisele lisareeglid ning seab nõude, et autojuhid ja sõidukid tohivad töö raames viibida teistes riikides üksnes teatud aja, misjärel tuleb neil kodumaale tagasi suunduda. Sõidukijuhtide vähesus muutub suureks probleemiks Juhtide vähesus on muutumas tõsiseks probleemiks nii Eestis kui ka enamikus teistes EL-i riikides. ERAA juhib tähelepanu asjaolule, et suur osa praegustest Eesti autojuhtidest on üle 50-aastased. Sektoril on keeruline noori inimesi kutsealale kaasata, samuti muudavad Eesti seadused teistest riikidest pärit autojuhtide palkamise suhteliselt kulukaks. Ühtlasi kaasneb noorte kutseliste sõidukijuhtide väljaõpetamisega oht, et pärast koolituse läbimist minnakse tööle hoopis välismaale. Praegune autoveo maksustamise süsteem sõltub suuresti kütuseaktsiisist CE Delfti (2019a) poolt Euroopa Komisjoni jaoks 2016. aasta andmete põhjal läbi viidud uuring näitab, et autoveost saadav tulu kattis Eestis umbes 20% autoveoga kaasnevast otsesest ja kaudsest kogukulust (s.t maanteetaristu hinnangulised kulud, avariide ja ummikute hinnangulised väliskulud ning õhusaasteainete, kasvuhoonegaaside heite ja müra keskkonnakulud, vt Joonis 12). Seda on märkimisväärselt vähem kui EL-i keskmine, 27%, ning sellise tulemusega ollakse EL-i riikide seas tagantpoolt viiendal kohal. Sellegipoolest laekus kütusemaksudena vahendeid enam kui piisavalt, et nende abil teedega seotud kulud katta – umbes kaks korda rohkem kui stabiilses seisukorras süsteemi keskmised kulutused. Kütuseaktsiisi taseme poolest oldi Euroopa Liidus kümne kõrgeimalt maksustatud riigi hulgas, nii et teekasutustasu süsteemi suunav mõju CO2 heite vähendamisele on tublisti üle keskmise. 2020. aasta algul vastas diislikütuse aktsiis varihinnale 184 eurot ühe tonni CO2 kohta (Joonis 13 ja Joonis 14).33 1. mail 2020 vähendati aktsiisi veerandi võrra – see oli üks Covid-19 põhjustatud olukorra leevendamise meetmeid –, nii et see hakkas vastama varihinnale 139 eurot ühe tonni CO2 kohta. See on ajutine meede, mis jääb kehtima kaheks aastaks, ja selle tulemusena on Eesti kümne väikseima diislikütuse aktsiisiga riigi hulgas Euroopa Liidus. Joonis 12. 2016. aastal Euroopa Liidu, Šveitsi, Norra, Ameerika Ühendriikide, Kanada ja Jaapani kaubaveo üldine tulude ja kulude suhe 93 Märge: EL28 akronüümide kõrval esinevad ka akronüümid CA-AB (Kanada provints Alberta), CA-BC (Kanada provints Briti Columbia), USA-CA (USA osariik California), USA- MO (USA osariik Missouri) ja JP (Jaapan). Allikas: CE Delft (2019a). Teise samal andmestikul (CE Delft 2019b) põhineva uuringu andmed näitavad, et kuigi väikeste tarbesõidukite keskmine tulu on EL-i keskmisega ligikaudu võrdne, oli raskete kaubaveokite tulu 2016. aastal keskmisest umbes 25% väiksem. Pärast seda võeti Eestis raskete kaubaveokite puhul kasutusele ajapõhise teekasutustasu süsteem. Ehkki on näha, et rasketelt kaubaveokitelt saadav tulu on pärast nende võrdluste tegemist kasvanud, on selle tegelik mõju praktikas piiratud. Eesti teemaksukleebiste süsteemist saadud tulu oli 2019. aastal tagasihoidlik, 20 miljonit eurot. Eestis rakendatavad teekasutuse maksustamise kavad erinevad teistes EL-i liikmesriikides enim kasutatavatest kavadest kahel viisil. Esiteks, Eestis on kehtestatud raskeveokite omandimaks (või liiklusmaks) nagu enamikus teisteski EL-i riikides, aga selle kohaldamine erineb tavapärasest praktikast, sest maksustatakse ainult üle 12-tonnise täismassiga raskeid kaubaveokeid. Teiseks, Eesti toetub teekasutuse maksustamise vahenditest tavatult suurel määral kütuseaktsiisile. Erinevalt kahest ülalnimetatud maksust tuleb kütuseaktsiisi tasuda kõigil liiklejatel (v.a mittefossiilset päritolu kütust kasutavate sõidukite puhul), ehkki diislikütust maksustatakse soodusmääraga. Kütuseaktsiisist sõltuvuse puuduseks on asjaolu, et Eesti teedevõrku kasutavad välismaised ja isegi kodumaised veoettevõtjad saavad aktsiisi maksmisest hoiduda, kui tangivad naaberriikides madalama hinnaga kütust. Need ettevõtjad maksavad tegelikult ainult odava teemaksukleebise eest. Selle tagajärjel kahaneb võimalik tulu märkimisväärselt, ühtlasi väheneb rahvusvahelisi vedusid tegevate kodu- ja välismaiste veoettevõtjate panus Eesti teedevõrgule põhjustatud kulude katmisse. Kütuseturismi aitab vähendada ajutine aktsiisi alandamine, mis sai teoks Covid-19 kriisi leevendavate meetmete paketi osana. Ei ole veel selge, milline on selle meetme netomõju kütuseaktsiisist saadavale tulule. Joonis 13. Kütuseaktsiis Euroopa Liidu liikmesriikides (2019. a juuli) 900 800 Diesel Summa (eurodes) 1000 liitri kütuse kohta Petrol 700 600 500 400 300 200 100 0 United… Latvia Spain Croatia Sweden Bulgaria Slovakia Cyprus Poland Romania Germany Finland Greece Denmark Netherlands Belgium Slovenia France Lithuania Hungary Austria Ireland Portugal Italy Luxembourg Malta Estonia Czech Republic Allikas: Euroopa Keskkonnaamet (https://www.eea.europa.eu/data-and-maps/indicators/fuel-prices-and- taxes/assessment-4), Rahandusministeerium (https://www.rahandusministeerium.ee/et/uudised/lisanduvad- eelarve-kinnistud-vähem-täiendavad-kohustused-ja-kaasaegsed-suspensioni-rahastatud-pensionid). 94  Joonis 14. Kütuseaktsiis Euroopa Liidu liikmesriikides (2020. a mai) 900 800 Diesel Summa (eurodes) 1000 liitri kütuse kohta Petrol 700 600 500 400 300 200 100 0 Latvia Poland Slovakia Spain Sweden Germany Finland Bulgaria Cyprus Romania Greece Croatia Netherlands France Belgium Lithuania Austria Denmark Ireland Hungary Slovenia Malta United Kingdom Portugal Italy Luxembourg Estonia Czech Republic Allikas: Euroopa Keskkonnaamet (https://www.eea.europa.eu/data-and-maps/indicators/fuel-prices-and- taxes/assessment-4), Rahandusministeerium (https://www.rahandusministeerium.ee/en/news/supplementary- budget-includes-lower-excise-duties-and-temporary-suspension-funded-pension. 2018. aastal hääletas Euroopa Parlament Euroopa Liidus uute teekasutustasu eeskirjade kehtestamise poolt, et tagada liiklejate võrdne kohtlemine ja aidata liikmesriikidel saavutada transpordisektoris CO2 heitkoguste vähendamisega seotud eesmärgid (Euroopa Parlamendi, 2018). Kui määruse eelnõu heaks kiidetakse, hakatakse maksustama kõiki Euroopa Liidus olevaid kerg- ja raskesõidukeid, olenevalt nende tegelikust teekasutusest ja tekitatud saastest. Selleks peavad ajapõhiseid tasusid (teemaksukleebised) kasutavad EL-i liikmesriigid minema üle vahemaapõhistele tasudele (teemaksud) – 2023. aastast veoautode ja busside puhul ning 2027. aastast furgoonautode (üle 2,4 tonni) ja väikebusside puhul. See muudatus annab võimaluse suurendada raskete kaubaveokite maksustamist sel määral, et see oleks paremini kooskõlas EL-i keskmisega, ning parandada üldist kulude katmist. Pikemaid autoronge praegu ei lubata, kuid need võiksid muuta autoveosektori ohutumaks, puhtamaks ja tõhusamaks Suure veovõimega sõiduk (High-Capacity Vehicle – HCV) on kaubaveok, mis on raskem või pikem (või mõlemat) kui sõidukid, millel on praegu lubatud üldises teedevõrgus liigelda. Euroopa moodulsüsteemis (EMS) on nende pikkus tavaliselt 25,25 meetrit ja täismass 50–60 tonni. Nendele sõidukitele on viimastel aastatel antud paljudes riikides kasutusluba, seda tänu nende ohutusele, tõhususele ja keskkonnakasule (Rahvusvaheline Transpordifoorum, 2019). Praegu on kuni 25,25 meetri pikkuseid sõidukeid lubatud kasutada Hollandis, Soomes, Taanis, Rootsis, Hispaanias ja Saksamaal, kuid mitte Eestis. Nende kasutamise lubamine teatud maanteedel võib aidata suurendada Eesti autoveosektori üldist tõhusust. Reformi valdkonnad Reformida senist transpordi maksustamise süsteemi Nii kauba- kui ka reisijateveo maksustamise ja teekasutustasude rakendamise kord tuleb üle vaadata. Üldine eesmärk peaks olema tagada kulude tõhus katmine, keskkonnakulu vähendamiseks vajalike stiimulite rakendamine ning tõhusa maksustamise ja kasutustasude süsteemi kujundamine, mille 95 halduskulud oleksid väikesed ja välismaal registreeritud kasutajatelt küsitav tasu asjakohane. Konkreetselt maanteede puhul peaks eesmärk olema ka saavutada võimaliku tee-ettevõtja rahastamise sõltumatus, nagu on öeldud alapeatükis 2.1 „Asutuste struktuur“. Transpordi maksustamise ülevaates on soovitatav arvesse võtta kõiki transpordiliike ning nii reisijate- kui ka kaubavedu. Ehkki Euroopa Komisjoni ettepanekud teekasutustasude uute eeskirjade kohta on endiselt arutamisel ja muudatust ei pruugita lõppkokkuvõttes nõuda, peaks Eesti siiski uurima võimalusi, kuidas minna ajapõhiselt teekasutustasu süsteemilt üle vahemaapõhisele süsteemile. See võimaldaks teekasutustasuna saadavat tulu oluliselt suurendada, vähendada piiri tagant ostetava kütuse pealt aktsiisi maksmata jätmise tõttu tekkivat kahju ning soodustada väliskulude internaliseerimist. Samuti annaks see tugeva tõuke olukorra tõhustamiseks selle kaudu, et rakendatakse suuremat koormustegurit ja vastavat kauba komplekteerimise (koondsaadetiste moodustamine) logistikat. Vahemaapõhise maksustamissüsteemi juurutamiseks parimate lahenduste leidmiseks on vaja teha koostööd teiste riikidega. Kogemusi võiks jagada nende riikidega, kes plaanivad hetkel ise minna ajapõhiselt süsteemilt üle vahemaapõhisele süsteemile, näiteks Hollandiga, kus valitsus on käivitanud programmi „Vrachtwagenheffing“34. Samuti võiks eeskuju võtta Saksamaa edukast Maut-süsteemist, mille korral rakendatakse vahemaapõhiseid tasusid, mis kehtivad ka kiirteede võrgust väljaspool asuvate maanteede puhul35, ja muid teisteski EL-i riikides tuntud sarnaseid tasusid. Liikumine vahemaapõhiste tasude rakendamise suunas on pikaajalise strateegia jaoks ülioluline. See avardab Eesti võimalusi maanteetaristut rahastada ning tänu prognoositavale rahastamisele ühtlasi kindlustab maanteetaristu hooldamise ja selle kasutatavuse tõhususe. Rahvusvaheline Transpordifoorum on oma ettepanekutes Eesti asutuste struktuuri kohta (vt jaotis 2.1) soovitanud muuta Maanteeameti riigile kuuluvaks ettevõtteks. Kui tee-ettevõtja kataks üle 50% oma kuludest teekasutustasu abil, oleks tal võimalik koguda vahendeid investeeringute rahastamiseks. Võlg kantaks ettevõtte enda raamatupidamisaruandesse ja seda ei käsitletaks Eesti riigivõlana, arvestades Maastrichti kriteeriumeid. See kaotaks teeinvesteeringu projektide puhul vajaduse kuluka avaliku ja erasektori partnerluse järele, vältimaks riigivõla piiride ületamist. Kui autoveoettevõtjate maksukoormust suurendada ei taheta, võiks kaaluda vahemaapõhiste tasude tasaarvestamist muude maksude vähendamise teel. See aitaks kaasa tee-ettevõtja rahastamise sõltumatusele. Praktiline moodus selle saavutamiseks oleks osaline diislikütuse aktsiisi tagastamine kütuse majandustegevuses kasutamise korral ning seda moodust saaks rakendada maksureformi järkjärguliseks läbiviimiseks lühikeses kuni keskpikas perspektiivis. Rahandusministeerium võiks muuta ka maksutagastuse määra, et kohaneda tulude võimaliku kõikumisega. Kui tee-ettevõtja ei saavuta rahastamises piisavat sõltumatust üksnes autoveo vahemaapõhise maksustamise teel, tuleks kaaluda maksu kehtestamist ka teistele autokasutajatele. Kujundada välja raampõhimõtted väga suure veovõimega sõidukite toomiseks Eesti maanteedele Väga suure veovõimega sõidukid võimaldavad parandada sektori tõhusust ja ohutust ning nendega kaasneb suurem keskkonnakasu. Seda on täheldatud üha rohkemates Rahvusvahelise Transpordifoorumi riikides, näiteks Saksamaal, Taanis ja Rootsis. Ent suur osa Eesti teedevõrgust ei pruugi selliste sõidukite jaoks sobilik olla, mistõttu võib nende tõhusaks kasutuselevõtuks vaja minna muid meetmeid. See tähendab, et tuleb välja töötada integreeritud tegevuspõhimõtete raamistik, mis muu hulgas sisaldaks täpseid andmeid sobilike teede võrgustiku kohta. 96 Kogu selle protsessi suunamisel võiks lähtuda Rahvusvahelise Transpordifoorumi aruandest (2019) väga suure veovõimega sõidukite kohta, eriti selle peatükist „Package for policy makers: Toolbox and performance metrics“ („Pakett poliitikakujundajatele: vahendid ja tulemusnäitajad“). Peale nõuannete, kuidas väga suure veovõimega sõidukeid tasakaalukalt kasutusele võtta, sisaldab see ka käsitlust sellest, kuidas hinnata nendega kaasnevat kasu ja kahju, aitamaks poliitikakujundajatel mõista seda tüüpi sõidukite eeliseid ning selgitada nende olemust nii poliitikutele kui ka laiemale üldsusele. Parandada autoveosektori konkurentsivõimet ja leida lahendused sõidukijuhtide puuduse vähendamiseks Eesti valitsus peaks looma rahvusvahelisel autoveoturul Eesti ja teiste riikide vedajatele võrdsemad võimalused. Üleminek ajapõhiselt maksustamiselt vahemaapõhisele maksustamisele oleks seejuures võtmetähtsusega meede, samuti oleks kasu välismaiste autojuhtide värbamisele kehtestatud piirangute leevendamisest. Valitsus peaks piisavate täitemeetmete abil tagama, et täidetaks Eestis tegutsevate välismaiste vedajate tegevust reguleerivaid nõudeid. Ministeerium võiks kasutada Euroopa Liidus liikuvuspaketi teemal peetud arutelusid (Euroopa Parlament, 2020), et analüüsida, kuidas teistest riikidest pärit sõidukijuhtide värbamisele rakendatav riiklik poliitika mõjutab Euroopa Liidu veosektori suhtelist konkurentsivõimet, ning sillutada teed senise poliitika reformimisele kogu liidus. Eesti valitsus juba rahastab bussijuhtide ja töötute koolitamist, ent peale selle võiks ta arutada juhtide vähesuse teemat ka sektori ja huvirühmadega (kaubasaatjad, ekspediitorid, autoveoettevõtjad, vastavat koolitust ja väljaõpet pakkuvad organisatsioonid) ning hinnata olemasolevaid vahendeid, mille abil äratada noortes inimestes (nii meestes kui ka naistes) selle elukutse vastu suuremat huvi ja neid pikemat aega sel ametikohal hoida. Juhtide vähesuse probleemi võib aidata lahendada see, kui korrastataks teeäärseid veokijuhtidele mõeldud rajatisi, kiirendataks sõidueksamite tegemist ja tervisekontrolli läbimist, vähendataks aega, mis jääb noortel inimestel keskhariduse omandamise ja raskeveoki juhtimise õiguse saamise alumise vanusepiiri vahele, edendataks isejuhtivate (autonoomsete) sõidukite ja täiustatud juhiabisüsteemide arendamist, soodustataks veokite kolonnis sõitmist, parandataks juhtide töötingimus ning korraldataks kampaaniaid, mis tutvustaksid autoveosektoris töötamise võimalusi. Kaasata transpordi tegevuslubade süsteemi ka alla 3,5-tonnise täismassiga veokid Uue EL-i liikuvuspaketi (Euroopa Parlament, 2020) üle peetud arutelusid võiks kasutada praeguse autoveo- ettevõtja kutsealale juurdepääsu reguleeriva süsteemi ülevaatamiseks. Arvestades asjaolu, et üha rohkem on hakatud kasutama sõidukeid, mille täismass on veidi alla 3,5 tonni (eelkõige furgoonautod), võiks soovitada ka sellised sõidukid süsteemi lisada, et nende tegevust paremini kontrollida. Näiteks võib neilt tegevusloa ära võtta, kui nad on korduvalt liikluseeskirju rikkunud või põhjustanud mitu liiklusõnnetust. Uus EL-i liikuvuspakett seab Eestit läbivatele rahvusvahelistele vedudele piiriks 2,5 tonni, kuid EL-i liikmesriikidel on lubatud seda piiri riigisisese transpordi puhul alandada. Seega peaks eespool soovitatud ülevaate tegemise käigus hindama, kas võrdsete võimaluste ja/või liiklusohutuse seisukohast on kasulik siseturul piirmäära alandada või mitte. Algatada kogu sektorit hõlmav programm, vähendamaks autoveo ja logistika süsinikuheidet Arvestades üha suuremat keskkonnale pööratavat tähelepanu ja Euroopa Komisjoni ambitsioone, on oluline käivitada kogu sektorit hõlmav süsinikuheite vähendamise programm. Nurgakiviks oleks raskeveokitele elektroonilise kilomeetripõhise maksu kehtestamine, nagu eelmises jaotises kirjeldatud. 97 Ühendkuningriigis (Tekstikast 2), Hollandis ja Rootsis käivitatud programmid, mis keskendusid transpordi ja logistika süsinikuheite vähendamisele, võiksid innustada ka Eestit samalaadset ettevõtmist järele proovima. Tekstikast 2. Autoveoteenuste süsinikuheite vähendamine Ühendkuningriigis Ühendkuningriigi valitsus on tellinud uuringu, mis käsitleks võimalikke meetmeid ja stsenaariumeid, kuidas vähendada sealset autoveoteenuste süsinikuheidet. Võimalikud meetmed on näiteks järgmised: • veokite elektrifitseerimine süsinikuvaba elektritootmise käigus saadud elektrienergia abil; • logistikaandmete standardimine ja jagamine, et kiirendada organisatsioonidevahelist koostööd, parandades seeläbi logistika tõhusust ja vähendades CO2 heidet; • telemaatilisel andmeedastusel põhinev sõidukijuhi koolitamine on edaspidigi tähtsal kohal autoveo põhjustatud süsinikuheite vähendamisel; • mitmesugused IKT-põhised lahendused, näiteks dünaamiline sõiduplaneerimine ning ummikute ennustamine ja neist teatamine, vähendavad ummikutega kaasnevat negatiivset mõju; • ehkki ajapiirangute lõdvendamine võib minna vastuollu praeguste teenusepõhise konkurentsi suundumustega, on selle puhul täheldatud märkimisväärset tõhususe paranemist; • veokitele eeskirjades kehtestatud massi ja mõõtmeid muutes antaks luba tavapärasest suurema veovõimega sõidukite kasutamisele ja parandataks logistika tõhusust; • mitmesugused sõidukile paigaldatavad aerodünaamilised täiustused võimaldavad olulisel määral suurendada kütusesäästu. Allikas: GOfS, 2019. Kaaluda autoveo puhul selliste stiimulite rakendamist, mis aitaksid maanteetaristu varade hooldamise ja haldamise kulusid vähendada Taristu hooldamise kulude vähendamiseks on võimalik võtta lisameetmeid autoveo maksustamise, väga suure veovõimega sõidukite ja süsinikuheite vähendamise vallas. Neid on põhjalikumalt käsitletud Rahvusvahelise Transpordifoorumi aruandes „Policies to Extend the Life of Road Assets“ („Taristuvarade eluea pikendamise meetmed“, 2018). Võimalikud on näiteks järgmised meetmed:  teevarade hoolduse kavandamine peaks põhinema liikluse prognoosidel;  uurida võimalusi, kuidas vähendada teekatte kulumist maksustamise ja regulatiivse raamistiku kaudu. See võib hõlmata topeltrehvide ja/või mitmeteljeliste rühmade kasutamise soodustamist. Topeltrehvide ja/või mitmeteljeliste rühmade kasutamist võivad soodustada suuremad massipiirangud või väiksemad teekasutustasud.  kasutada tuleks regulatiivseid ja rahalisi stiimuleid, et julgustada veoettevõtjaid kasutama sõidukite puhul selliseid konstruktsioone ja konfiguratsioone, millel teevara kulumise näitajad on väiksemad. 98 2.8. Merenduspoliitika Rahvusvaheline Transpordifoorum tegi ülevaate meritsi teostatava kauba- ja reisijateveo praegustest murekohtadest Eestis, hindas laevandussektoris hiljuti tehtud reforme ning kaalus asjakohaseid meetmeid, mille abil vähendada Eestis laevanduse keskkonnamõju. Käesolevas peatükis esitatakse selle analüüsi järeldused. Määratletakse neli põhiprobleemi ja pakutakse välja võimalusi, kuidas Eesti meretransporti sadamate, merenduspoliitika, parvlaevatranspordi ja laevanduse keskkonnamõjudega seoses reformida. Põhiprobleemid Sadamad: suurema transiitliikluse poole pärast kümneaastast langust? Eestis on 222 sisevee- ja meresadamat, millest enamik on mõeldud väikelaevadele. Kõige olulisem sadamarühm on vaieldamatult Tallinna Sadam, mis käitleb 63% Eesti sadamalastist ja teenindab valdavat enamikku Eesti laevareisijatest. Tallinna Sadam koosneb viiest sadamakohast, millest suurimad on Tallinna Vanasadam ja Muuga sadam.36 Vanasadamat, mis asub linna ajaloolise keskuse lähedal, kasutatakse peamiselt reisiparvlaevade ja ristluslaevade jaoks, seevastu linnast väljas asuv Muuga sadam teenindab peamiselt kaubalaevu. Eesti sadamad tulevad hästi toime, kui lähtuda laeva keskmisest käitlusajast. Konteinerilaevade puhul oli käitlusaeg 2018. aastal Eesti sadamates pisut üle poole päeva, see on Läänemere riikide seas parim tulemus. Eestis on suhteliselt hea (lühike) käitlusaeg ka tankeritel, kuid puistlastilaevade tulemus on suhteliselt kehvem. Muuga sadam on meelitanud ligi ühe maailma juhtiva terminalioperaatori HHLA, kes käitab seal oma konteineriterminali. Aga see ei ole Läänemere regioonis midagi erakordset. Näiteks Leedus Klaipedas käitab terminali konteineriveo ettevõtja MSC. Hoolimata headest tulemusnäitajatest on Eesti sadamate kaubakäive langenud 48 miljonilt tonnilt 2006. aastal 38 miljoni tonnini 2019. aastal, põhjuseks suuresti Tallinna Sadama kaubamahu vähenemine poole võrra (Joonis 15). Veose liikidest on selle aja jooksul kõige suurema languse läbi teinud vedellast. Konteinerikäive on Eesti sadamates kasvanud 0,13 miljonilt TEU-lt 2009. aastal 0,24 miljoni TEU-ni 2018. aastal. Sadamate kaubakäibe kahanemine on suuresti seletatav Venemaa transiitliikluse vähenemisega, mille jaoks Muuga sadam toimis läbipääsuväravana. Liikluse vähenemise põhjuseks on omakorda Venemaa strateegia suunata laevad oma äsja valminud sadamatesse Ust-Lugasse ja Primorskisse. 99  Joonis 15. Eesti sadamate kaubamaht aastatel 2002–2018 45 40 35 30 Tallinn Miljonit meetertonni 25 Sillamäe Pärnu 20 Kunda 15 Vene-Balti Miiduranna 10 5 0 Allikas: Eurostat (2020). Seega ei seisa Eesti sadamad silmitsi läbilaskevõime piirangutega. Isegi konteineriveo sektoris, mis on läbi teinud kasvu, on piisavalt potentsiaali plaanitavat veomahtu suurendada. Näiteks Muuga sadama HHLA terminali käitlemisvõimsus on alla 1/3 selle plaanitud võimsusest. Seega võib öelda, et sadamatel on rohkesti potentsiaali, mida saaks ära kasutada. Merenduse sidusrühmad eeldavad lähiaastatel mõningast kaubaveo kasvu, ehkki mitte selle jõudmist varasemale tasemele.37 Väikese siseturu ja piiratud mereekspordi tõttu sõltub Eesti sadamate kasvupotentsiaal transiitkaubandusest. Ent arvestades Venemaa uusi transiidisadamaid, ei ole 2006. aasta eelse taseme saavutamine tõenäoline. Eesti sadamate tähtsus Hiina Rahvavabariigi algatuse „Üks vöönd, üks tee“ raames on praegu üsna väike, kuna Venemaa raudteed piiravad Balti riikidesse suunduda võivaid kaubavooge. Küll aga on uuritud alternatiivseid transiidivooge, mis võiksid tekitada juurde uut laevaliiklust:  põhja–lõuna-suunaline transiitvedu Soomest Tallinna (laevaga) ja seejärel mööda maismaad Musta mereni (Odessa) või Aadria mereni (Koper). See võiks olla arvestatav variant Türgisse suunduva kaubaveo korral, kuna sõiduaeg väheneks poole võrra. Selle tulemusena võib Tallinna sadamasse jõuda mitme miljoni tonni jagu uut lasti;  eeldatavalt 2027. aastal valmival Rail Balticul arvatakse olevat suur potentsiaal suunata Muuga sadamasse uusi kaubavooge, kuna plaanide järgi ühendatakse see Rail Balticu taristuga. Samuti on logistikaettevõtjad välja töötanud kolme Balti riiki ühendava rongiprojekti (nn Merevaigurongi projekt), mis võib samuti Eesti sadamate kaubaveomahtu suurendada. Selliste kaubaveokoridoride arendamine võib tõepoolest aidata kaasa uute transiidivoogude tekitamisele. Ent paljude sadamate jaoks on probleemiks olemasoleva transiitliikluse säilitamine. Laevandusettevõtjatel on lastimiseks ja lossimiseks mitmeid alternatiivseid võimalusi, nende vara on vallasvara ja tänu oma ostujõule (paljudes laevanduse allsektorites) saavad nad sadamad üksteisega konkureerima panna. 100 Transiidi valdkonnas on Eesti sadamatel mitmeid tugevaid konkurente, näiteks Klaipeda sadam. Eesti sadamad peaksid transiidivoo tagamiseks pakkuma laevandusettevõtjatele lisaväärtusega teenuseid, mida mujal ei pakuta. See muudaks laevandusettevõtjate üleminekukulud suuremaks, juhul kui nad tahaksid sadamat vahetada. Pikaajaliste kaubakoridori projektide arendamise muudab keerukamaks asjaolu, et Tallinna Sadam on ühtaegu äriühing ja samas keskvalitsuse reguleeritav ettevõte. Tallinna Sadama aktsiad on börsil noteeritud, millega kaasneb vajadus kaitsta aktsionäride huve, need on aga sageli seotud lühiajaliste eesmärkidega. Suurem osa aktsiaid (67%) kuulub keskvalitsusele, paraku ei näi riik oma tugevat positsiooni ära kasutavat, et töötada välja avalikust huvist lähtuv sadamate strateegia. Sadamate puhul hõlmab avalik huvi majanduse arengu, keskkonnasäästlikkuse ja laevaühenduse tagamist. Eesti valitsus võiks suuremal määral avalikust huvist lähtuvate eesmärkide poole püüelda, kasutades selleks mõju, mis kaasneb enamusosalusega või aktsionäriks olemisega Eesti eri sadamates. Laevandus: maksusoodustused on kehtestatud, kuid nende tõhusus on ebatõenäoline Eestis on mitu laevaomanikku, kuid nende kaubaalused ei sõida peaaegu kunagi Eesti lipu all ega palka Eesti meremehi. Selle lahendamiseks tegi Eesti valitsus ettepaneku võtta vastu laevanduse toetuspakett. Parlament kiitis selle heaks 2019. aastal38 ja see jõustub 1. juulil 2020. Pakett koosneb kahest meetmest: laevaomanikele kehtestatakse teatav laevamaks – tonnaažimaks –, mis asendab tavapärast ettevõtte tulumaksu, ja meremeeste puhul rakendatakse tööjõumaksude erirežiimi. Tonnaažimaks võimaldab laevandusettevõtjatel taotleda maksustamist vastavalt nende käideldavale kogumahutavusele, mitte ei lähtuta tavapärasest ettevõtte tulumaksusüsteemist. Sellised kavad aitavad alandada makstavate maksude üldist taset ning neid käsitletakse riigiabina, mis vajab Euroopa Komisjoni heakskiitu. Euroopa Komisjon kiitis Eesti tonnaažimaksu kava heaks 2019. aasta detsembris. Meremeestele suunatud kavade kohaselt võib Euroopa Liidu või Euroopa Majanduspiirkonna (EMP) liikmesriigi lipu all sõitvatel laevadel töötavate meremeeste tööjõukulusid (s.t tulumaksu ja sotsiaalkindlustusmakseid) osaliselt või täielikult vähendada. Tulumaksuseaduse (Riigi Teataja, 2019) muudatustega kehtestatakse teatud tingimustele vastavatel laevadel töötavate meremeeste palga maksustamisele uued reeglid.39 Nende kahe toetusmeetme abil loodab Eesti motiveerida laevandusettevõtjaid registreerima oma aluseid, eelkõige kaubalaevu, sõitma Eesti lipu all. Viimane suur kaubalaev lahkus Eesti laevaregistrist 2014. aastal. Valitsuse eesmärk on tuua järgmise seitsme aasta jooksul Eesti laevaregistrisse 300 suurt kaubalaeva. 40 Toetuspaketi seletuskirjas avaldab Veeteede Amet lootust, et 2024. aastaks sõidab Eesti lipu all umbes 200 laeva. Laevade pealt loodab Eesti riik saada tulu registritasude ja tonnaažimaksu võtmise kaudu. Reformi on õigustatud ka vajadusega kaasata ja arendada Eestis merendusalast oskusteavet ning suurendada kaldapersonali tööhõivet (juriidilised, juhtimis- ja haldusfunktsioonid). Eesti meremeestes huvi äratamine? Ei ole selge, mil määral suudab reform mõjutada Eesti meremehi Eesti lipu all tööle asuma, kuna andmeid praeguste töökohtade ja töötingimuste kohta pole. Võrreldes Põhja-Euroopa riikidega, nagu Norra ja Soome, ei tundu kõnealuse kava abil loodavad töötingimused olevat piisavalt soodsad, et äratada huvi uutes või praegu mõnes teises jurisdiktsioonis töötavates meremeestes. Kuigi see kava võib aidata ligi meelitada meremehi, kes töötavad kolmandate isikute registreeritud laevadel, ja kuigi selle sihtrühma töötingimused muutuvad suhteliselt paremaks, ei ole uue meetme tööhõive- ja sotsiaalkindlustuse standardid kooskõlas Eesti lipu all sõitvatel reisilaevadel või muudes sektorites Eestis kehtivate standarditega. Näiteks tulumaksuseaduses ja sotsiaalmaksuseaduses (Eesti Vabariigi Valitsus, 2019a) tehtud muudatustega kehtestatakse fikseeritud tulumaksubaas, mille pealt arvestatakse 101 sotsiaalkindlustusmakseid. Kuna fikseeritud maksubaas (750 eurot) on enamikul juhtudel väiksem kui brutopalk, on meremeeste sotsiaalkindlustusmaksed tavapärasest väiksemad ja seetõttu kahaneb ka tulevikus neile makstav pension. Tavaliselt rakendatakse töötajate puhul solidaarset ravikindlustust, mis jääb kehtima kuni kaheks kuuks pärast töölepingu lõppemist, sh nende Eesti meremeeste puhul, kes on varem töötanud Eesti lipu all sõitvatel kaubalaevadel. Uue kava järgi sellist kindlustust enam ei võimaldata, küll aga on Eesti lipu all töötavatel meremeestel võimalik sõlmida vabatahtlik ravikindlustuse leping. Sellist vabatahtlikku osalemist peetakse keeruliseks ja jäigaks, kuna lepingu saab sõlmida ainult aastaks. Samas, meremehed vahetavad sageli lepinguid ja seetõttu ka lipuriigi jurisdiktsiooni – lausa mitu korda aastas –, mistõttu tavaliselt vajavad nad kindlustuslepingut üksnes lühikesteks tegevusetuse perioodideks. Kui tööandja ei ole Eesti resident ja tööleping on sõlmitud mujal, ei näe meretöö seadus (Eesti Vabariigi Valitsus, 2019b) ette mingisugust kohustust tasuda sotsiaalkindlustusmakseid – isegi siis mitte, kui meremees töötab Eesti lipu all sõitval laeval. Eesti lipu tagasi pildile toomine? Eesti maksukeskkond on juba praegu väga soodne. Ettevõtte tulumaksu tasutakse Eestis ainult dividendide, mitte sissetuleku pealt, seega on tõenäoline, et tonnaažimaks ei pruugi Eesti laevaomanike jaoks olla piisavalt atraktiivne. Pealegi, kuna Eesti ettevõtjad käitavad praegu umbes 50–60 laeva, on eesmärk saada Eesti lipu alla 200 laeva kahtlemata suunatud sellele, et kaastaks ka mitte-eestlastest laevaomanikke. Rahvusvaheline Transpordifoorum leidis Eesti kavale antud hinnangus, et see on teiste Euroopa tonnaažimaksukavadega võrreldes väga konkurentsivõimeline. Uusi laevu kasutavate ettevõtete jaoks võib Eesti kava pidada teiste EL-i liikmesriikide kavade seas üheks kõige ligitõmbavamaks: see näeb ette tonnaažimaksu määra 50%-lise vähendamise alla 5 aasta vanuste laevade puhul ja 25%-lise vähendamise 5–10 aasta vanuste laevade puhul. Soodsam näib olevat ainult Malta tonnaažimaksukava (Joonis 16). Kuna sellised laevaomanikud on tõenäoliselt pärit EL-i liikmesriikidest, võiks väita, et Eesti tonnaažimaksukava soodustab Euroopa Liidus maksukonkurentsi, mida komisjoni suunised meretranspordile antava riigiabi kohta (Euroopa Komisjon, 2004) püüavad vältida. Ent Eesti tonnaažimaksu kasutamine ei pruugi tingimata Eesti lipu alla rohkem laevu tuua, sest kaubalaevad saavad tonnaažimaksust kasu ka siis, kui nad sõidavad EL-i või EMP liikmesriigi lipu all. Selle olukorra lahendamiseks on Eesti valitsus algatanud teise laevapereta prahitud laevade registri loomise. Tegemist on elektroonilise registriga, mis põhineb e-residentsuse kontseptsioonil, mida Eesti rakendab ettevõtlussektoris. Selle teise laevaregistri eesmärk on kaasata välismaiseid laevahaldusettevõtjaid ja piiranguid on sel vähe: senist äri- ja juhtimistegevust pole vaja Eestisse ümber suunata, kui on olemas kohalik kontaktisik merejuristi näol. Kuna selle registri sihtrühmaks olevad laevaomanikud on tõenäoliselt pärit EL-i liikmesriikidest, võiks väita, et Eesti tonnaažimaksukava soodustab Euroopa Liidu sisest maksukonkurentsi, mida komisjoni suunised meretranspordile antava riigiabi kohta püüavad vältida. Laevapereta prahitud laevade registreid haldab Veeteede Amet. Reform jõustus 1. juulil 2020. Laevanduse toetuspaketi ja laevaregistri reformi on laevandussektori sidusrühmad formuleerinud meetmetena, mille abil tekitada juurde kaldapersonali töökohti ja luua lisaväärtust – see aitaks kujundada Eestis välja merendusklastri. Võidakse küsida, kuidas see täpselt teoks saab. Isegi sellistes riikides, mille laevaregistrid on maailma suurimad, näiteks Panama, on registritest saadav majanduslik lisaväärtus väga väike ja klastrimõju nõrk (Rahvusvaheline Transpordifoorum, 2019). Väidetavalt on see Eesti puhul veelgi enam nii, kuna teine register ei nõua laevandusettevõtjate füüsilist kohalolu. Sellegipoolest peaks Eesti kaldasektori arendamine olema merendusvaldkonnas töökohtade loomisel prioriteet. Seda on soovitatav teha nii sektori strateegilise arengukava abil kui ka kohalike tsoneerimiseeskirjade vastavusseviimisega, et investeerida lisaväärtusega tegevustesse. Eestil on potentsiaali ja vahendeid, et kujundada välja oma 102 merendusklaster, mis muu hulgas hõlmaks kõrgtehnoloogilisi merendusettevõtjaid, mereõppeasutusi ja merendusalaseid innovatsiooniprogramme. Joonis 16. Tonnaažimaks ühe laeva kohta olenevalt laeva netotonnaažist 45 000 40 000 Tonnaažimaks ühe laeva kohta (eurodes) 35 000 30 000 25 000 20 000 15 000 10 000 5 000 0 20 000 NT 50 000 NT 100 000 NT Märkus: väärtused eurodes netotonnaaži (NT, laeva lastiruumide puhasmahutavus) kategooriate kaupa. Allikas: põhineb Euroopa Liidu liikmesriikide tonnaažimaksukavade analüüsil. Parvlaevad: pakkumismenetluse ülesehitusest tulenev parvlaevateenuse kvaliteedi vähene optimaalsus Kuna Eestil on Läänemeres 16 suurt alalise asustusega saart ja sadu väikesi saari, on riik meritsi korraldatavast reisijateveost sõltuv. Liiga kõrgete piletihindade vältimiseks on riik parvlaevaühendust toetanud ja sõlminud ühistranspordilepingud, mis tagavad laevaühenduse järgmistel liinidel:  Mandri-Eesti ning Harju-, Lääne- ja Pärnumaa suuremate asustatud saarte ja väikesaarte vahel;  Saaremaa ja Hiiumaa vahel;  Saaremaa ja Saare maakonna piires asuvate väikesaarte vahel. Neid liine võidakse toetada nii keskvalitsuse makstavate subsiidiumidega kui ka kohaliku omavalitsuse eelarvest saadava rahaga. Kui kohaliku omavalitsuse eelarve tulubaasist ei piisa, et katta avaliku liiniveoga seotud kulutused, katab riik puudujäägi kas täielikult või osaliselt riigieelarve vahendite abil. Meritsi korraldatav ühistransport mandri ja saarte vahel võimaldab regulaarset ühendust, kuid stiimuleid, mis ajendaks ettevõtjaid pakkuma paremaid ja tõhusamaid teenuseid, on vähe. Avaliku liiniveo korral kehtestab maksimaalse sõidukilomeetri tariifi ja maksimaalse piletihinna nii maakonna- kui ka kaugliinidel 103 ministeerium. Parvlaevaga korraldatava haldusüksusesisese reisijateveo korral kehtestab maksimaalsed hinnad kohalik omavalitsus. Kuigi üldine rahulolu saarte parvlaevaühendusega on suurenenud41, esineb teatud aegadel, eriti kolmel suvekuul ja nädalavahetustel liinide läbilaskevõimes probleeme. Ent meetmed, mis ajendaksid kliente sõitma parvlaevaga muul ajal kui tipptundidel ja nädalavahetusel, ei näi olevat piisavalt mõjusad. Mandri ja saarte vahelise ühenduse üks eesmärke on tagada mandril asuvate töökohtade ja põhiteenuste kättesaadavus. Seega on oluline, et püsielanike ja pendelrändajate jaoks oleksid hinnad stabiilsed. Küll aga saaks erineva hinnastamisega, näiteks turistide ja püsielanike piletihindade suurema diferentseerimisega tipptundide sõidukoormust vähendada ja vahendite kasutamist ühtlustada, nii et sõitjaid jaguks ka väiksema nõudlusega ajale. Varasemate pakkumismenetluste puhul avaliku teenindamise lepingutega seoses on Eesti ametivõimud täheldanud konkurentsi vähesust. See on tulenenud eelkõige kohaliku turu väiksusest42, pakkumistingimustest ning määrustest ja standarditest (näiteks teenuse kvaliteedi ja ohutuse kohta43), mida ettevõtjad peavad järgima. 2011–2012 tegi ainult üks ettevõtja pakkumise osutada teenuseid kahele peamisele saarele, Saaremaale ja Hiiumaale. Tallinna Sadam, mis kuulus sel ajal täielikult riigi omandusse, asutas tütarettevõttest parvlaevafirma, kes tegigi nende teenuste osutamiseks pakkumise. 2014. aastal kuulutas ministeerium välja hankekonkursi Rohuküla–Heltermaa ja Virtsu–Kuivastu liinide teenindamiseks alates 1. oktoobrist 2016. Riigihankes osalesid Väinamere Liinid OÜ (100% eraomanduses) ning ühispakkujad TS Laevad ja OÜ TS Shipping (100% Tallinna Sadama tütarettevõtted). 2014. aastal allkirjastati reederiga TS Laevad uus leping, mis lõppeb 2026. aasta oktoobris. Piiratud konkurentsi põhjuseks võivad olla frantsiisiga kaasnevad pöördumatud kulud, kuna kapitalikaubad ja põhivara tuleb ettevõtjatel omandada omal riisikol. Tõenäoliselt peletavad sellised suured frantsiisiga kaasnevad varalised investeeringud ehk pöördumatud kulud44 ettevõtjaid pakkumiste tegemisest eemale. Ettevõtja, kes kahtleb lepingu pikendamise võimalustes või pole kindel omandatud vara turuväärtuses lepingu pikendamata jätmise korral, ei soovi pakkumist esitada ega investeeringuid teha, kui lepingu tähtajad on lühikesed ja turgu valitsevate operaatorite soodsamat kohtlemist pole edasise pakkumismenetluse käigus ette nähtud (Hervik ja Sunde, 2002). Praegu on olukord selline Virtsu–Kuivastu ja Rohuküla–Heltermaa liinil. Järgmiste lepingutega seoses arutatakse riigile kuuluvate laevade (võib-olla ka elektriparvlaevade) kasutamist. Seni on riigile kuuluvaid aluseid kasutatud mandri ja väiksemate saarte vahel ühistransporditeenuste osutamiseks. Laevadelt lähtuv heide: paljulubavad projektid, kuid vaja on veelgi suuremaid parendusi Meretranspordi sektorist pärineb märkimisväärne osa õhusaastest – eriti rannikualadel ja sadamalinnades –, mis kahjustab inimeste tervist. Tallinna Vanasadamast on saanud kohalikus plaanis oluline saaste ja kasvuhoonegaaside allikas, eelkõige meritsi reisijate arvu kasvu tõttu – Eesti sadamate kaudu liikuvate reisijate hulk on viimase 15 aasta jooksul enam kui kahekordistunud. Peamised laevandustegevuse käigus õhku heidetavad saasteained, mis võivad kahjustada inimeste tervist ja keskkonda, on tahked osakesed, lämmastikoksiidid (NOx), vääveloksiidid (SOx), lenduvad orgaanilised ühendid (LOÜ) ja osoon (O3). Kuna laevandustegevus eeldatavalt kasvab, suureneb järgmistel aastatel ka äsja nimetatud heitmete õhku sattumise oht. Neist märkimisväärne osa pärineb reisilaevadelt, näiteks parvlaevadelt ja ristlejatelt, mis on ankrusse jäänud tihedalt asustatud linnapiirkonna lähedal. Rahvusvahelise Transpordifoorumi 2019. aasta andmed näitavad, et 3/4 Tallinna Sadama laevanduslikest heitmetest pärineb parvlaevadelt ja ristlejatelt. Võetud on mitmesuguseid riiklikke ja kohaliku tasandi meetmeid, mis on ambitsioonikamad kui mitmed rahvusvahelised ja riigiülesed abinõud. 104   Elektrilised parvlaevad. Parvlaevaliiklust korraldav reeder TS Laevad (67% ulatuses riigile kuuluva Tallinna Sadama 100%-line tütarettevõte) on sõlminud lepingu Eesti laevaehitaja Baltic Workboats AS-iga, et ehitada Virtsu–Kuivastu liini teenindav parvlaev Tõll ümber hübriidlaevaks. Alusele paigaldatakse akupank, mille tulemusena väheneb diislikütuse tarbimine ja selle käigus õhku sattuvate heitgaaside kogus, sest fossiilkütuse asemel kasutatakse akupanka salvestatud elektrienergiat. Sel viisil loodab TS Laevad asendada umbes 20% diislikütusest elektrienergiaga.45  Sadamaseadmed. Tallinna Sadam rajab Eesti esimese kaldapealse energiavarustussüsteemi projekti raames oma viiele Vanasadamas asuvale muulile energiavarustussüsteemi, mille eesmärk on anda sadamas viibivatele laevadele elektrienergiat ja selle tulemusena vähendada laevamootorite tekitatavat heidet ja mürareostust. 2020. aasta lõpuks paigaldab sadam sildumise kiirendamiseks ja selle ohutuse suurendamiseks automatiseeritud sildumissüsteemid, mille tulemusena loodetakse vähendada laevakütuse kasutamist ja käsitsi sildumisega kaasnevat vajadust inimtööjõu järele.46  Sadamatasude soodustused keskkonnasäästu korral. 2019. aasta jaanuaris kehtestas Tallinna Sadama kontsern keskkonnasäästlikkuse alusel diferentseeritud sadamatasud.47 Soodustusi rakendatakse kõigis Tallinna Sadama sadamates (Vanasadamas, Muugal, Paldiski Lõunasadamas, Paljassaarel ja Saaremaal). Soodustused põhinevad rahvusvahelisel laevade keskkonnaalasel indeksil (ingl environmental ship index, ESI)48, mis võtab arvesse nii laeva tekitatava õhusaaste heitkoguseid, laeva energiasäästumeetmeid kui ka laeva valmisolekut luua ühendus kaldal asuva energiavarustussüsteemiga. Laevad, mille ESI-skoor on vähemalt 80, võivad taotleda tonnaažtasult 8% allahindlust. Laevade puhul, mille ESI-skoor on 65–79,9, kohaldatakse 3% allahindlust.49 Välja on kuulutatud ka lisameetmed. Uute pakkumismenetluste korral tuleb riigil osta elektrilisi parvlaevu või esitatakse pakkujale nõue, et parvalevad peavad olema heitevabad või elektrilised. Lisaks kuulutas Tallinna Sadam välja riigihanke uue keskkonnasäästliku ja tehnika tasemele vastava reisiterminali ehitamiseks Vanasadamasse. Pole selge, kas neist meetmetest piisab. Keskkonnasäästlikkusest lähtuvate sadamatasu soodustuste puhul tekivad tõenäoliselt samad probleemid, mida täheldati 2018. aasta Rahvusvahelise Transpordifoorumi uuringus: neil puudub selge fookus, kohaldamisala pole piisav ning n-ö puhaste ja mittepuhaste laevade vahelised erinevused on minimaalsed (Rahvusvaheline Transpordifoorum, 2018). Elektrifitseerimisega kaasneb keskkonnakasu ainult siis, kui kasutatav elekter ise on säästvalt toodetud. 2018. aastal saadi 76% Eesti elektritoodangust põlevkivist (IEA, 2019). Eesti suurimatele saartele tuuleparkide rajamise plaanid aitaksid toetada parvlaevade elektrifitseerimise vallas tehtavaid jõupingutusi ja panustada säästvalt toodetud elektri kasutamisse, kuid samas tuleb lahendada võimalikud võrku ühendamisega seotud probleemid.50 Säästvalt toodetud elektrit saab osta ka ühiselt energiaturult. Eesti on osa Põhjamaade ühisest elektriturust Nord Pool’ist. Reformi valdkonnad Sadamad: edendada sadamates lisaväärtusega tegevusi Uute transiidivoogude tekitamisel ja hoidmisel võib kasu olla sellest, kui sadamapiirkondades pakutaks rohkem lisaväärtusega tegevusi. Nii oleks võimalik sadamataristut paremini ära kasutada, praegu on see alakasutatud. Lisaväärtusega tegevused võivad sadamate ja kaubaliikide lõikes erineda, selleks võivad olla näiteks kergmontaaži, ringlussevõtu, jäätmekäitluse, värvimise, remondi, hooldamise ja muu seesugusega seotud teenused. Lisaväärtusega tegevused, mida sadamates pakkuda, võib kindlaks määrata sadamate 105 arengukavades ja tsoneeringutes, võimaluse korral ka muid vahendeid kasutades. Selleks on vaja, et valitsus täidaks sadamate ja nende tegevuse kujundamisel proaktiivsemat rolli, kasutades ära võimalusi, mis kaasnevad mitmes Eestis sadamas omanikuks või aktsionäriks olemisega, aga ka püüdes senisest tugevamini lõimida maakasutust ja transpordi kavandamist, mida on eespool esile toodud. Selline ettevaatavam roll võiks avalduda sadamate riikliku arengukava koostamises, mille raames tehtaks muu hulgas uuring sadamates või nende lähedal elluviidavate erisuguste lisaväärtust loovate tegevuste kohta ning mille põhjal koostataks sadamapiirkonna maakasutuse ja tsoneerimise riiklikud suunised. Peale selle võiks riik tegutseda proaktiivsemalt Tallinna Sadama otsuste langetamise protsessis, kasutades ära oma enamusosalusega kaasnevaid õigusi. Õigupoolest peaks valitsus loobuma sadamate börsil noteerimise võimalusest, kui ei ole ilmne, et see toimub avalikkuse huvides. Laevandus: töötada välja põhjalik merendusklastri strateegia Laevaregistrite reform ja riigiabi pakett on kasulikud vaid vähestele Eesti merendusvaldkonna sidusrühmadele, eriti õigusteenuste osutamisel. Valitsus peaks kaaluma sellise merendusklastri strateegia väljatöötamist, mis jaotaks väärtusloome suurema hulga allsektorite vahel. Klastristrateegia peaks pöörama tähelepanu innovaatilistele merendustegevustele, milles Eesti võiks kujundada välja suhtelise eelise, näiteks merendusalase innovatsiooni ja tehnoloogiatega seoses. Eestis merenduse sidusrühmade platvormi loomine oleks klastristrateegia koostamisel esimene samm, mis aitaks selles sektoris luua juurde uusi töökohti. Laevandussektorile suunatud riigiabi paketile tuleks võimalikult kiiresti hinnang anda. Kava kaotab kehtivuse 2026. aasta juunis, kuid valitsus peaks kaaluma kava tühistamist palju varem, kui leitakse, et see ei loo lisaväärtust või avaldab Euroopa-sisestele võrdsetele võimalustele negatiivset mõju. Andmeid tuleks hakata koguma võimalikult varakult, et eesootavatel aastatel oleks võimalik läbi viia range hindamine. Eesti võiks siinkohal järgida Rootsit – sealne transpordi analüüsiga tegelev valitsusasutus Trafikanalys annab igal aastal hinnangu mõju kohta, mida Rootsi makstavad toetused on laevandussektorile avaldanud.51 Parvlaevad: teenuse kvaliteedi parandamiseks kujundada ümber parvlaevade hankemenetlus Dünaamiline hinnakujundus on parvlaevade ja nende taristu aastaringse tasakaalustatuma ja tõhusama kasutamise saavutamisel kesksel kohal. Ehkki ühistranspordiseadus seda praegu ei luba, tuleks kaaluda tõhusamate hinnastrateegiate kasutuselevõtu võimalust, et vältida tihedama liiklusega sõiduaegadel taristuvarade ülekoormamist ning muul ajal, sh tööpäevadel, nende alakasutamist. Üks võimalus oleks kehtestada inimestele, kes ei ole saare püsielanikud, suvise hooaja ja nädalavahetuse tipptundideks lisamaks. Püsielanikuks olemisega kaasnevate soodustuste saamise tingimused võiks muuta rangemaks, vaadates üle püsielanikuna käsitlemiseks vajalikud miinimumnõuded ja kõrvaldades õiguslikud lüngad, mis praegu võimaldavad soodustustest kasu saada.52 Tulevaste pakkumismenetluste puhul võiks kaaluda reederitele suurest algkapitalinõudest tuleneva riski vähendamist, muutes kõikidel liinidel laevade avaliku hanke tavapäraseks praktikaks. Ministeerium kaalub peamiste saareliinide puhul frantsiisi võimaldamist, nii et potentsiaalsed pakkujad ei peaks silmitsi seisma kapitalivara omandamisega kaasnevate pöördumatute kuludega, nagu mõne senise lepingu puhul on probleemiks olnud. Sellisel juhul võib osutuda vajalikuks lisada lepingusse hooldust puudutavad tingimused, kuna asjaolu, et laevade omandiõigus kuulub riigile, võib kahandada reederite huvi laevu nõuetekohaselt hooldada. Edaspidi võiks pakkumismenetluse osaks olla ka liinide ümberkorraldamise vajaduse hindamine, mis võib aidata parandada reisijate teenindamist. Lisaks võiks kõigi liinide puhul läbi viia peamiste tulemusnäitajate analüüse ja regulaarseid rahulolu-uuringuid, et selgitada välja kitsaskohad. Võimalike püsiühendusteede, näiteks Muhu saart (Saare maakonnas) ja mandrit ühendava silla eeliseks oleks asjaolu, et saared oleksid mandriga alaliselt ühendatud. Valitsus peab tagama, et selliste projektide 106 kulusid ja tulusid hinnataks põhjalikult. Ja plaani elluviimise korral ei tohiks silla ületamise eest küsida ülemäära suurt tasu. Olemasoleva parvlaevaühenduse tugevdamine võib osutuda paremini teostatavaks lahenduseks. Laevadelt lähtuv heide: soodustada meretranspordi heitkoguste vähendamise poliitikat Meretranspordi heitkoguseid on võimalik vähendada selle kaudu, et kasutatakse elektrilisi parvlaevu, kaldapealseid energiavarustussüsteeme ja elektrienergia laadimise punkte ning rakendatakse keskkonnasäästlikkuse alusel diferentseeritud sadamatasusid. Eesti valitsusel on avalike teenuste osutamise kohustuse kaudu võimalik muuta kohalik parvlaevapark keskkonnahoidlikumaks, eelkõige selle elektrifitseerimise teel. Ühtlasi peaks valitsus looma selleks vajalikud eeltingimused, nimelt tuleks riigil investeerida elektrienergia laadimise süsteemidesse ja, üldisemas plaanis, pakkuda puhast energiat. Eesti peamistesse sadamatesse kaldapealsete energiavarustussüsteemide ja elektritanklate rajamist tuleks toetada seadustega, nagu on tehtud USA-s California osariigis. Samuti peaksid Eesti peamised sadamad minema täielikult üle keskkonnasäästlikkuse alusel diferentseeritud sadamatasude süsteemile. See eeldab aga riigilt proaktiivsemat rolli sadamakavade rakendamisel, mis on võimalik seeläbi, et ollakse mitmes Eestis sadamas omanikuks või aktsionäriks. Sadamate hinnasüsteem ei sisalda mitte üksnes parimate tulemusnäitajatega laevadele pakutavat bonus’t, vaid ka kõige kehvemate näitajatega laevadele ette nähtud malus’t. Ühe huvitava näite sellise süsteemi kohta leiab Norrast Bergenist, kus n-ö puhtaimatele laevadele tehtav hinnaalandus moodustab 17,5% ja n-ö mustimatelt laevadelt nõutav lisatasu 150% üldisest sadamatasust. Paigaldatud on tsentraalne õhusaaste-seiresüsteem, mis peab sadamate keskkonnameetmete tõhususe kontrollimiseks ühendama kõik meretranspordi tekitatud õhusaasteainete (näiteks NOx, SOx ja tahked osakesed) mõõtmise tulemused. 2.9. Lennunduspoliitika Selles jaotises tuuakse välja Eesti lennunduspoliitika kujundamise peamised probleemid. Hinnatakse sektori poliitika- ja investeerimisotsuste toetamiseks kasutatava tõendibaasi ja juhtimisraamistiku hetkeseisu. Seejärel esitatakse soovitusi, kuidas otsuste tegemist parandada, rakendades lennundusandmete süstemaatilist kogumist ning uusi metodoloogilisi ja juhtimisraamistikke, mille abil transpordiprojektide kavandamist ja valimist suunata. Jaotise peamine eesmärk on aidata välja töötada paremad vahendid, mida Eesti lennunduspoliitika kujundajad saaksid otsuste tegemisel kasutada. Põhiprobleemid Lennundusele on paljudes valdkondades vähe alternatiive, tegemist on ainsa transpordiliigiga, mille puhul saab vedada nii reisijaid kui ka kaupa suure vahemaa taha lühikese aja jooksul. Seetõttu on lennundusel riigi arengus väga oluline roll, see soodustab turismi ja investeeringute tegemist ning edendab kaupade ja teenustega kauplemist. Lennuühenduse potentsiaal pakkuda sotsiaal-majanduslikke hüvesid suureneb, kuna lennureisid muutuvad järjest odavamaks ning reisijatele ja ekspediitoritele paremini kättesaadavaks. Samal ajal kaasnevad lennundusega suured keskkonnakulud. Lennujaamade läheduses elavad inimesed kannatavad nii õhusõidukite tekitatava müra kui ka õhusaaste ja maanteedel esinevate ummikute tõttu – tegemist on reisijate ja kauba vedamise ning lennujaamatöötajate liiklemise kõrvalnähtustega. Ühtlasi on lennundus üks maailma kõige süsinikumahukamaid tööstusharusid ja võimalusi seda muuta on praegu vähe. Tõsi, lennunduse kütusesäästlikkuse suurendamisel on tehtud märkimisväärseid edusamme, kuid need ei suuda korvata kahjulikku mõju, mis tuleneb lennureisinõudluse kiirest kasvust. Ehkki lennundusest lähtuvate heitkoguste osatähtsus kogu tänapäeva süsinikuheitest on umbes 2,5%, vajavad tulevikus selles 107 sektoris lahendamist suured kliimamuutustega seotud probleemid (Rahvusvaheline Transpordifoorum, 2019). Lennuühenduse eeliste maksimeerimiseks ja sektorist tulenevate keskkonnaprobleemide leevendamiseks tuleb poliitikakujundajatel tugineda otsuste tegemisel põhjalikele lennuühenduse analüüsidele ning võtta arvesse kõiki positiivseid ja negatiivseid mõjutusi, mida lennundussektor majandusele ja ühiskonnale laiemalt avaldab. Selles jaotises antakse ülevaade tõenditest, mida Majandus- ja Kommunikatsiooniministeerium (MKM) peaks koguma, et lennunduspoliitikat teadlikumalt kujundada. Ühtlasi võtab see kokku jaotistes 2.1 „Asutuste struktuur“ ja 2.2 „Taristu kavandamine ja projekti valimine“ esitatud tähelepanekutest lennunduspoliitika kujundamise kohta. Poliitikakujundajad tuginevad otsuste tegemisel piiratud hulgale tõenditele Eestlastele võimaldatavast lennuühendusest tervikpildi saamiseks tuleb poliitikakujundajatel vastata järgmistele küsimustele.  Millised otselennud väljuvad Tallinna Lennujaamast? Kuhu saab Tallinna Lennujaamast lennata teiste lennujaamade kaudu?  Kui hästi on Tallinna Lennujaam ligipääsetav reisijatele, kaubale ja lennujaama töötajatele? Kui palju aega kulub lennujaama jõudmiseks ja millist liiki transpordiga sinna saab?  Kui rahul on kliendid pakutavate teenustega?  Kas lennuühenduse tagamisel esineb takistusi? Kuidas saaks neid eemaldada? Tallinna Lennujaam, mis on kõigi viie Eestis asuva lennujaama omanik ja käitaja, kogub eelnimetatud küsimuste abil vajalikku statistikat. Sellest võib olla kasu MKM-il lennuühenduse kohta perioodiliste ülevaadete koostamisel. Neid ülevaateid saaks kasutada eestlastele kättesaadava lennuühenduse arengu jälgimiseks ja selleks, et paremini mõista võimaliku lennunduspoliitika ja investeeringute mõju lennuühendusele. Ümberistumisega lennud on üldise lennuühenduse oluline osa Eestis tagab lennuühenduse peaaegu täies mahus Tallinna Lennujaam (TLL). Sealt saab lennata umbes 30 sihtkohta (Joonis 17) ja teenindatakse 98% kõigist riigi reisijatest (Tallinna Lennujaam, 2020). Tallinna Lennujaam pakub mõnevõrra vähem sihtkohti kui Leedus asuv Vilniuse Lennujaam, kust saab talvel lennata 50 ja suvel 57 kohta (Vilniuse Lennujaam, 2020), ning oluliselt vähem sihtkohti kui Lätis asuv Riia Lennujaam, kust talvel saab lennata 80 ja suvel 105 kohta (Routes Online, 2019). 108  Joonis 17. Sihtkohad, kuhu Tallinnast saab lennata (2019. aasta suvine graafik) Allikas: Majandus- ja Kommunikatsiooniministeeriumi lennusihtkohtade graafik Ehkki Tallinnast ühtegi mandritevahelist lendu ei lähtu, on reisijatele tagatud ühendus mitme sellise sõlmjaamaga, kust tehakse ka pikamaalende. Igal nädalal väljub üle 50 lennu, mis viivad reisijaid Tallinnast lähipiirkonna sõlmjaamadesse – Helsingisse ja Stockholmi. Tallinna Lennujaamast lähtuva lennuühenduse kõrgetasemeline analüüs näitab, et lennujaama pakutavate otse- ja ümberistumisega lendude tase on tunduvalt parem kui Euroopa samalaadsete lennujaamade puhul keskmiselt (ACI Europe, 2019).53 Euroopa Lennujaamade Nõukogu (ACI Europe) koostatud ülevaates Euroopa lennujaamade lennuühenduse kohta on öeldud, et Tallinna Lennujaama ühendatus on parem kui Vilniusel: mõlema jaama otseühenduste skoor on võrdväärne, aga Tallinn pakub umbes 30% rohkem ümberistumisega lende kui Vilnius. Riia Lennujaam teenindab TLL-ist üle kahe korra rohkem lende – see seletab, miks Riia otseühenduste skoor on laias laastus kaks korda suurem kui Tallinnal. Ümberistumistega lendude osas on lennujaamade tulemused väga sarnased, mis näitab, kuivõrd hästi on Tallinn ühendatud mitme Euroopas asuva pikamaalende pakkuva sõlmjaamaga. Eesti lennuühendusest tervikpildi saamiseks tuleb arvestada nii pakutavaid otselende kui ka ümberistumisega lendude võimalusi. Perioodilised otse- ja ümberistumisega lendude analüüsid võimaldaksid poliitikakujundajatel jälgida olukorra arengut ning teha kindlaks lennuühendusega seotud kitsaskohad ja lahendamist vajavad probleemid. Majandus- ja Kommunikatsiooniministeerium peab lennuühenduse ülevaadetes käsitlema ka Tallinna Lennujaama juurdepääsetavust MKM lennujaama juurdepääsetavuse ning seda võimaldavate transpordivahendite ja ühendusteede kohta praegu Eestis süstemaatiliselt andmeid ei kogu. 109 Lennujaama juurdepääsetavus on lennuühenduse puhul oluline tegur ja seda tuleb lennuühendust käsitlevates analüüsides arvesse võtta. Tallinna Lennujaama teeninduspiirkonna süstemaatiline ülevaade annaks aimu, mil määral on lennuühendus eestlastele kättesaadav. See võimaldaks kindlaks teha ka katvuses esinevad puudujäägid, et tagada piisav juurdepääs lennuühendusele kogu riigis. Ülevaade peaks hõlmama ka juurdepääsu väljaspool Eestit asuvatele rahvusvahelistele lennujaamadele. Riia Lennujaam on neist lähim, kuid Tallinnast sinna jõudmiseks tuleb viis tundi autoga sõita, seega asub see liiga kaugel, et seda arvestatavaks võimaluseks pidada. Ent kui Rail Baltic valmib, võib Riiga sõitmiseks kuluv aeg märkimisväärselt lüheneda. Sellisel juhul saaks edaspidi Eesti lennuühenduse hindamisel arvestada ka Riia kui sõlmjaama pakutavat ühendust ja selle juurdepääsetavust eestlastele. Teise olulise asjaoluna tuleks arvesse võtta maapealse transporditaristu võimalusi. Enamik reisijaid saabub Tallinna Lennujaama autoga ja ka lahkub sealt sellega. Olemasolevate andmete põhjal kasutas 2019. aastal ühistransporti reisijatest umbes veerand.54 2014. aastal koostatud keskkonnamõjude hinnangus on tõdetud, et Tallinna Lennujaamal „ei ole olulist negatiivset mõju lähiümbruse õhukvaliteedile, eriti arvestades, et lennukite heitmed väljutatakse suurema kõrguse ja rõhu all“ (Tallinna Lennujaam, 2019). Pikemat ajavahemikku kajastavad seireandmed maapealse taristu säästvuse kohta oleksid kasulikuks lisamaterjaliks TLL-i keskkonnahoiualastes aruteludes ja võimaldaksid poliitikakujundajatel hinnata, mil määral suurendab lennujaamaliiklus lennujaama lähiümbruse teedel ummikuid ja õhusaastet. Reisijad ja lennunduse sidusrühmad tuleb edaspidigi ära kuulata 2019. aastal kuulus Tallinna Lennujaam nende jaamade hulka, mis teenindasid aastas 2–5 miljonit reisijat. Üks selgeid eesmärke, mille Eesti valitsused on Tallinna Lennujaamale seadnud, on tuua „kasu nii omanikule kui ka sise- ja välisklientidele ning ühiskonnale tervikuna“ (Tallinna Lennujaam, 2019). Lennujaam viib igal aastal reisijate hulgas läbi arvamusuuringuid, et selgitada välja, kuidas lennujaama omanikul ja käitajal selle eesmärgi saavutamine on õnnestunud, ning mõista, kuidas valitsuse poliitika võib reisijate rahulolu mõjutada. Viimastel aastatel on Tallinna Lennujaama klientide rahulolu olnud järjepidevalt suur. 2019. aastal oli Tallinna Lennujaama üldise rahulolu keskmine näitaja ACI reisijaküsitluse alusel viiepunktiskaalal 4,5 punkti, mille tulemusena jõuti kuni 5 miljonit reisijat teenindavate Euroopa lennujaamade hulgas kolme parima hulka. Selliste ülevaadete koostamine peaks saama MKM-i regulaarselt läbiviidava lennuühenduse hindamise osaks. Need peaksid täiendama juba peetavaid konsultatsioone lennunduse sidusrühmadega, sealhulgas lennujaamade, lennuettevõtjate, aeronavigatsiooniteenuste pakkujate, koolitajate, kohalike elanike ja muude ettevõtetega. Süsteemse lähenemisviisi puudumine transpordisektoris tehtavale modelleerimisele ja hindamisele suurendab poliitiliste ja investeerimisega seotud otsuste langetamise ebaoptimaalsust Nagu peatükis „Taristu kavandamine ja projekti valimine“ on kirjeldatud, puuduvad praegu poliitikakujundajatele suunatud üldised juhised, millest projektide tasuvusanalüüsi tegemisel lähtuda, ning hindamismeetodid on ebaühtlased. Peale selle antakse projektile hinnang tihtipeale liiga hilja, et see projekti valikut oluliselt mõjutada saaks. Lennundussektoris nagu teisteski transpordisektorites võib see kaasa tuua ebaoptimaalsete poliitiliste ja investeerimisotsuste tegemise. Lennundussektori juhtimine on killustunud Lennundussektori juhtimine on killustunud. Tsiviillennunduse poliitika kujundamine on MKM-i ülesanne. Tarbijate, sealhulgas lennureisijate õiguste kaitse kuulub Tarbijakaitse ja Tehnilise Järelevalve Ameti vastutusalasse. Lennundusega seotud keskkonnaküsimused on aga Keskkonnaministeeriumi pädevuses. Eesti Lennuamet vastutab rahvusvahelise lennuohutusega seotud kohustuste täitmise eest. Samuti koordineerib see lennundusjulgestusealast tegevust. Ameti tähelepanu on suunatud sellele, et tagada Rahvusvahelise Tsiviillennunduse Organisatsiooni (ICAO), Euroopa Liidu ja Euroopa 110 Lennundusohutusameti (EASA) kehtestatud suuniste ja juhiste järgmine.55 Mõningad olulised avaliku korraga seotud eesmärgid on antud täita Tallinna Lennujaamale, ilma et ükski sõltumatu reguleerimisasutus nende üle järelevalvet teostaks. Kuna transpordihalduse korraldus on transpordiliigi põhiselt killustunud ja Eesti on väikeriik, on Lennuameti võimalused arendada oma ülesannete täitmiseks välja piisav tehniline võimekus piiratud. Praegu on Lennuametis palgal umbes 30 töötajat. Selle puhul järgitakse Eesti transpordisektoris kasutatavat n-ö sõltumatu asutuse mudelit (OECD, 2014). Nagu peatükis 2.1 „Asutuste struktuur“ on soovitatud, tuleks Eestis luua keskne, kõiki transpordiliike reguleeriv asutus, millele antaks üle ka lennundusega seotud regulatiivsed volitused. Reformi valdkonnad Eelnenud käsitluses on välja toodud Eesti lennunduspoliitikas esinevad probleemid. Alljärgnevate soovitustega võetakse kokku konkreetsed reformivõimalused, mida andmete kogumise ja analüüsimisega seoses kaaluda. Samuti antakse kokkuvõte jaotistes 2.1 „Asutuste struktuur“ ning 2.2 „Taristu kavandamine ja projekti valimine“ esitatud soovitustest, mida saab lennundussektorile kohaldada. Soovitused põhinevad järgmistel Rahvusvahelise Transpordifoorumi dokumentidel ja intervjuudel:  aruanne lennuühenduse määratlemise, hindamise ja täiustamise kohta (Rahvusvaheline Transpordifoorum, 2018a);  aruanne lennundussektori projektide hindamise ja valimise parimate tavade kohta (Rahvusvaheline Transpordifoorum, 2017a);  Rahvusvahelise Transpordifoorumi personali korraldatud intervjuud lennunduse ja valitsussektori sidusrühmadega, mis viidi läbi 2019. aasta sügisel Eestisse tehtud lähetuse raames. Koostada otsustusraamistiku toetamiseks korrapäraseid lennuühenduse ülevaateid MKM peaks tegema perioodilisi lennuühenduse ülevaateid, et jälgida eestlastele kättesaadava lennuühenduse arengut ning paremini mõista mõju, mida tuleviku lennunduspoliitika või sellesse valdkonda tehtavad investeeringud lennuühendusele avaldavad. Selliseid analüüse saab koostada Tallinna Lennujaama kogutavate andmete ja tehtud statistika põhjal. Ideaalis peaks lennuühenduse ülevaade sisaldama järgmist:  otse- ja ümberistumisega lennuühenduse kohta antud hinnangud;  lennujaama kvaliteedinäitajad;  lennujaama teeninduspiirkonna kohta antud hinnangud;  andmed maapealse transporditaristu võimaluste kohta. Otse- ja ümberistumisega lennuühenduse hindamine. Eestis pakutava lennuühenduse hindamiseks peab MKM koguma andmeid nii otse- kui ka ümberistumisega lennuühenduse näitajate kohta ja neid hindama. Ümberistumisega lennuühenduse näitajad on Eestile iseloomuliku väikese lennuturu puhul eriti olulised, sest mandritevaheline ühendus on üldjuhul võimalik vaid ümberistumisega lendude vahendusel – Eesti puhul sel viisil, et reisijad lendavad Tallinnast otse mõnda Euroopa sõlmjaama, kust väljuvad ka pikamaalennud. 111 ACI Europe’i lennuühenduse kohta tehtud statistika (2019) annab põhjaliku ülevaate Euroopa lennujaamade otse- ja ümberistumisega lendudest. Need andmed on avalikud ja eri lennujaamade lennuühendust käsitlevates ACI aruannetes vabalt kättesaadavad.56 ACI lennuühenduse aruanded sisaldavad järgmisi ühenduvusnäitajaid.  Otselennuühendus: hinnatakse lennujaama pakutavaid otselennuteenuseid, mida mõõdetakse sihtkohtade hulga ja lennusageduse järgi (näiteks lennujaam, kust väljub iga päev viis lendu, saab rohkem punkte kui jaam, kust väljub ainult neli lendu).  Ümberistumisega lennuühendus: hinnatakse nende sihtkohtade arvu, kuhu kõnealusest lennujaamast on võimalik lennata teistes riikides asuvate sõlmjaamade kaudu. Näiteks kui vaatlusalusest lennujaamast on võimalik suunduda otse Schipholisse (Amsterdamis), Istanbuli või Dubaisse, laieneb võimalike sihtkohtade arv oluliselt, kuna neist jaamadest saab paljudes suundades edasi lennata. Ümberistumisega lennuühenduse võimaluste hindamisel võetakse arvesse nende kvaliteeti, lähtudes ümbersõidust ja sellele kuluvast ajast. Võimalus lennata Manchesterist Johannesburgi näiteks Pariisi Charles de Gaulle’i lennujaama kaudu annab rohkem punkte kui Kataris asuva Doha kaudu.  Lennujaama üldine ühendatus: võetakse arvesse kõnealusest lennujaamast lähtuvaid otse- ja ümberistumisega lende. Lennujaama üldist ühendatust kajastab otse- ja ümberistumisega lendude koondtulemus. See näitab, millisel määral on lennujaam ühendatud muu maailmaga, ükskõik kas otselendude või teistes lennujaamades toimuva ümberistumisega lendude kaudu. ACI Europe’i esitatud näitajaid saab MKM kasutada Eesti lennuühenduse kohta tehtava hindamise käigus. Juhul, kui ministeerium otsustab otse- ja ümberistumisega lennuühendust ise hinnata, võib ta selleks kasutada Rahvusvahelise Transpordifoorumi aruandes „Defining, Measuring, and Improving Air Connectivity“ (Rahvusvaheline Transpordifoorum, 2018a) mõlemat tüüpi lennuühenduse mõõtmise kohta esitatud lisateavet. Lennujaama kvaliteedinäitajad. Peale lennuühenduse hindamise tuleks hinnata ka lennujaama kvaliteeti. Tallinna Lennujaam saab sellekohaseid andmeid praegu ACI korraldatavast lennujaamade teeninduskvaliteeti käsitlevast reisijaküsitlusest (ASQ). Eesti lennujaamu külastavate reisijate kogemuse väljaselgitamine on ülioluline, tagamaks, et lennujaamad pakuksid klientidele suurepärast teenindust. Lennujaama teeninduspiirkonna hindamine. Tagamaks, et lennuühendus oleks kättesaadav kõigile Eesti kodanikele, on oluline, et lennuühenduse hindamisel võetaks arvesse ka neid näitajaid, mis kajastavad, kui palju aega kulub riigi mis tahes piirkonnast Tallinna Lennujaama jõudmiseks. Selline hindamine aitab kindlaks teha puudujäägid, mis ühest või teisest piirkonnast lennujaama jõudmisel võivad esineda. Nagu eespool mainitud, saaks edaspidi hakata hindamisel arvesse võtma ka teiste rahvusvaheliste lennujaamade lähedust (Riias, Helsingis) tingimusel, et neile jaamadele juurdepääsu võimaldavat maapealset transporditaristut arendataks sel määral, et neid oleks võimalik käsitleda TLL-i arvestatavate alternatiividena. Andmed lennujaamadele juurdepääsu võimaldava maapealse transporditaristu kohta. Maapealse transporditaristu säästvuse kohta kogutavad andmed võivad osutuda väärtuslikuks lisamaterjaliks TLL-i keskkonnahoidlikkuse hindamisel. Nende abil saab välja selgitada, millisel määral suurendab lennujaamaga seotud liiklus lennujaama lähiümbruse teedel ummikuid ja õhusaastet. TLL juba kogub selle kohta andmeid ning MKM peaks neid oma lennuühenduse hinnangutes ära kasutama. Eespool öeldule lisaks tuleks lennuühenduse hindamise raames pidada nõu ka lennundusvaldkonna sidusrühmadega – lennujaamade, lennuettevõtjate, õhunavigatsiooniteenuste pakkujate, koolitajate, 112 kohalike elanike ja teiste ettevõtjatega –, et saada teada, mida nemad peavad lennuühenduse suurimateks probleemideks ja kuidas võiks neid lahendada. Täpsem teave nende nõupidamiste ulatuse ja läbiviimise kohta on esitatud Rahvusvahelise Transpordifoorumi aruandes, milles on antud ülevaade sellest, kuidas eri riikide lennundussektoris otsuseid langetatakse (Rahvusvaheline Transpordifoorum, 2017a). Eesti lennundussektoris on sidusrühmadega konsulteerimiseks kasutusel hästi väljatöötatud protsess, mille kaudu saadakse tööstusharult, ekspertidelt, tarbijatelt ja kogukonnalt ministeeriumi koostatavate lennuühenduse analüüside tarbeks olulist teavet. Tugineda poliitika kujundamisel ja otsuste langetamisel süsteemsele transpordi modelleerimisele ja hindamisele Jaotises 2.2 „Taristu kavandamine ja projekti valimine“ on antud soovitusi, kuidas kujundada MKM-is välja transpordi süsteemse modelleerimise ja hindamise praktika, et toetada paremat poliitika kujundamist ja otstarbekamate investeerimisotsuste tegemist. Seal esitatud analüüsist selgub, et olemas on mitmesuguseid kasulikke modelleerimis- ja hindamisvahendeid. Ent praegu pole kehtestatud ühtegi ametlikku suunist ega lähenemisviisi, mis aitaks tagada, et neid vahendeid ministeeriumis otsuste tegemisel ka kasutataks. See näib nii olevat ka lennundussektoris. Tallinna Lennujaam kogub olulisi andmeid lennuühenduse kohta, samuti muid andmeid, mille põhjal otsuseid langetada. MKM peaks lennunduspoliitika kujundamisel neid andmeid rohkem ära kasutama (nagu eespool soovitatud). Lennundussektori kontekstis peaks süstemaatiline transpordi modelleerimine ja hindamine nägema ideaalis ette, kuidas arvestada murranguliste lennundusprojektide laiemat võimalikku mõju – mitte üksnes kulusid ja tulusid, mis moodustavad standardse tasuvusanalüüsi osa, vaid ka näiteks suurenenud tööviljakust või investeeringuid (Rahvusvaheline Transpordifoorum, 2017b). Teha kindlaks lennuühenduse kitsaskohad, käsitledes liikuvust sektoriülesest vaatenurgast Jaotises 2.1 „Asutuste struktuur“ on lähemalt vaadeldud, kuidas institutsionaalsed reformid võimaldavad Eestis esinevatele liikuvusprobleemidele läheneda sektoriüleselt. Seal on selgitatud ka sellise lähenemisviisi eeliseid. Transpordisektoris pooleliolevad ja plaanitavad institutsionaalsed reformid annavad poliitikakujundajatele võimaluse teha kindlaks, kuidas saaks lennundussektor transpordiühendust eri transpordiliikide lõikes kõige paremini toetada. Teisalt võimaldab sektoriülene lähenemisviis saada poliitikakujundajatel teavet selle kohta, kas maapealse transporditaristu täiustuste abil saaks parandada lennuühendust tervikuna. Lennuühenduse ja selle kättesaadavuse hindamine eri transpordiliike arvestades võimaldab ressursse tõhusamalt (ja sektoriüleselt) paigutada ning selle tulemusena liikuvust Eestis parandada. Sektoriülesed kaalutlused on üliolulised ka siis, kui on vaja otsustada, kui palju toetusraha võib äriliselt jätkusuutmatu lennuühenduse toetamiseks vaja minna (Rahvusvaheline Transpordifoorum, 2018b). Lennuettevõtjatele pandud kohustus osutada avalikke teenuseid, et tagada aastaringne ühendus Eesti kahe suurima saare ja mandri vahel, tuleks üle vaadata eri transpordiliike kaasavast vaatenurgast lähtudes. Avalike teenuste osutamiseks vajalike hangete läbiviimine kõigi transpordiliikide puhul on hiljuti läinud Maanteeameti pädevusse ning amet on tõepoolest loonud võimalusi läheneda olukorrale sektoriüleselt. Aidata lennundussektoril parema juhtimise kaudu saavutada riikliku ja kohaliku tasandi poliitika eesmärke Tallinna Lennujaamale seatud riikliku ja kohaliku tasandi eesmärkide saavutamist peaks rangelt kontrollima kavandatav reguleerimisasutus, tagamaks, et Eesti lennundussektor maksimeeriks tarbijatele ja majandusele laiemalt osaks saavat kasu ning et lennunduse keskkonnamõju võimalikult palju vähendataks. 113 Seda tuleks kaaluda seoses institutsionaalse reformi raames tehtud ettepanekutega luua reguleeriv ja järelevalvet teostav asutus, mis vastutaks kõigi transpordiliikide eest. Ühtlasi tuleks tagada, et selle asutuse regulatiivsed funktsioonid oleksid valitsusest piisavalt sõltumatud. Täpsem teave selle ettepaneku kohta on esitatud jaotises 2.1 „Asutuste struktuur“. 2.10. Tuleviku liikuvus: kohanemine tehnoloogia ja kliima muutustega Käesolevas ülevaates vaadeldakse lähenemisviise ja protsesse, mida Eesti riiklikud ja kohaliku omavalitsuse transpordiasutused kasutavad uute ja kujunemisjärgus transporditehnoloogiate kindlakstegemiseks, nendega seotud teadus- ja arendustegevuseks, nende katsetamiseks, hangete korraldamiseks ning nende juhtimiseks ja reguleerimiseks. Ühtlasi hinnatakse strateegiaid, kuidas muuta taristud n-ö tulevikukindlaks, eriti kliimamuutuste mõju suhtes. Samuti antakse uute ja kujunemisjärgus transporditehnoloogiate ja - teenuste kavandamiseks, hankimiseks ja reguleerimiseks soovitusi, mis on kooskõlas eespool esitatud institutsionaalse ja hankesüsteemi reformi ettepanekutega. Põhiprobleemid See jaotis tugineb seisukohale, et maailm on läbi tegemas transporditehnoloogia revolutsiooni. Elektrisõidukid, kergliiklusvahendid, liikuvusteenused ning isejuhtivad sõidukid muudavad viisi, kuidas me elame ja töötame. Nende muutuste laia haarde tõttu seisavad ametiasutused silmitsi raskustega, kuidas tagada, et tulemused vastaksid ühiskondlikele eesmärkidele. Samuti on keerulises olukorras eraõiguslikud organisatsioonid, kelle ärimudelid lüüakse paigast, nii et need tuleb uuesti üles ehitada. Transpordisektoris uute tehnoloogiate kasutuselevõtmiseks on vaja läbimõeldud ja strateegilist lähenemisviisi, kui tahetakse tehnoloogia pakutavaid võimalusi maksimaalselt ära kasutada ning nende kasutuselevõtuga seotud kulusid minimeerida. Sellise lähenemisviisi väljatöötamiseks tuleb poliitikakujundajatel panna paika eesmärgid ja prioriteedid selle kohta, mida nende arvates innovatsioon peaks toetama, ning töötada välja nende saavutamiseks vajalik selge üksikasjalik tegevuskava. Struktureeritud dialoogi pidamine eri sidusrühmadega muudab mõlema ülesande täitmise lihtsamaks. Sellest tulenevalt kirjeldatakse käesolevas jaotises peamisi takistusi, mis nende tulemuste saavutamisel teel ees seisavad, ning vahendeid, mille abil need ületada. Innovatsiooniga seotud teadmiste ja teadusuuringute killustatus võimendab transpordi innovatsioonipoliitika puudulikku koordineerimist Nii Eesti parlament kui ka valitsus on asutanud olulised organid, kes peavad tegelema innovatsiooni- ja teaduspoliitikaga. Eesti parlamendi Arenguseire Keskus on mõttekoda, mis teostab erisuguseid teemasid puudutavaid uurimisprojekte, mille eesmärk on analüüsida ühiskonna pikaajalist arengut ning teha kindlaks uusi suundumusi. Uurimisrühma kuuluvad Eesti ja välisriikide eksperdid. Valitsuse juures tegutseb Teadus- ja Arendusnõukogu, mida juhib peaminister ning millesse kuulub veel kolm valitsuse ministrit (sealhulgas väliskaubandus- ja infotehnoloogiaminister) ja kaheksa valitsuse nimetatud liiget. Nõukogu tööd toetab kaks alalist komisjoni, mõlemat juhib minister57: innovatsioonipoliitika komisjon, mida juhib majandus- ja kommunikatsiooniminister, ning teaduspoliitika komisjon, mida juhib haridus- ja teadusminister. Komisjonid annavad igal aastal Teadus- ja Arendusnõukogule aru oma töö tulemustest ja järgmise aasta plaanidest.58 Samas valdkonnas tegutsev oluline valitsusväline üksus on näiteks tükk aega tagasi asutatud Eesti Tuleviku- uuringute Instituut, mis töötab Tallinna Ülikooli alluvuses. Instituut keskendub oma tegevuses 114 innovatsioonipoliitikale ja on varasemalt koostanud Euroopa Liidu jaoks Eesti innovatsioonipoliitika ülevaate.59 Eesti ametnikud on teatanud, et ka paljude muude, nii valitsuse juhitavate kui ka valitsusväliste algatuste raames käsitletakse teemasid, mis võivad transpordisektorile otseselt või kaudselt olulised olla. Leidub arvukalt tegevuse poolest kattuvaid töörühmi, laboreid, teadusprojekte, katsestende ja tööstusplatvorme. Need tuginevad EL-i asutuste, Eesti valitsusametnike, erasektori töötajate (sh nii juba väljakujunenud kui ka alles kujunemisjärgus olevatest tööstusharudest pärit kutseühenduste ja ettevõtete töötajad) ning rahvusvahelise ja riikliku teadus- ja arenduskogukonna pakutavatele teenustele. Selline institutsionaalse ülesehituse laiahaardelisus viitab asjaolule, et innovatsiooni ja selle poliitilist mõju peetakse Eestis ülimalt tähtsaks. Samas rõhutasid intervjueeritud, et killustatus on suur ning puuduvad ametlikud korraldused olukorra kooskõlastamiseks või eri osapoolte vaheliseks teadmiste jagamiseks. Seni on teadmiste jagamine sõltunud suuresti mitteametlikest mehhanismidest, eelkõige eri organite liikmete isiklikest suhetest. Ühtlasi toob vähene selgus eri organite rollide ja tegevusvaldkondade osas kaasa ebakindluse, keda neist kutsuda ühes või teises ettevõtmises osalema. Üldjoontes on süsteem läbipaistmatu, mis põhjustab omajagu probleeme nii avalikust kui ka erasektorist pärit huvilistele, kes sooviksid kavandada innovaatilist tulevikutranspordi taristut ja teenuseid ning sellesse investeerida. Valitsuse jaoks toob tõhusa kooskõlastuse puudumine kaasa kaks vastandlikku probleemi. Esiteks, tehnoloogiainvesteeringuid puudutavad otsused, millel võib transporditeenuste osutamisele olla suur mõju (näiteks 5G-võrgu kasutuselevõtt), tehakse tihtipeale ilma, et MKM ning teised asjaomased ministeeriumid ja asutused omavahel piisavalt põhjalikult nõu peaksid ja ettevõtmisi kooskõlastaksid.60 Teisalt, mõnikord viiakse sarnaseid tehnoloogia hindamise projekte läbi mitu korda eri osapoolte eestvedamisel – selle põhjuseks on kas ebaselge vastutusvaldkondade jaotus või läbipaistmatus ja puudulik kommunikatsioon. Nii valitsusametnikud kui ka erasektori ettevõtjad on tunnistanud, et kooskõlastatud protsessi puudumine uute ja kujunemisjärgus olevate transporditehnoloogiate ja -teenuste kindlakstegemisel, hindamisel ja katsetamisel on oluline probleem. Ametnikud märkisid, et tehnoloogia- ja innovatsiooniküsimuste käsitlemisel esinevad probleemid on teravas vastuolus rahvusvaheliselt tunnustatud programmi „Eesti e-valitsemine“ hea tavaga, mis pakub kodanikele ja e-residentidele IT-taristut ja -teenuseid ning parandab nende ja ametiasutuste vahelise veebisuhtluse kvaliteeti. Kui tahetakse, et Eestist saaks tuleviku liikuvusteenuste juht, vajab praegune transpordi ja liikuvuse arengukava samasugust sidusat strateegiat, mis hõlmaks nii kavandamis- ja koordineerimisprotsessi kui ka rahastamissüsteemi.61 Töötajate võimekus ja ressursid on piiratud Ametnikud on väitnud, et ministeeriumitel ja valitsusasutustel on liiga vähe töötajaid, kel oleks piisavalt teadmisi-oskusi uute tehnoloogiate ja teenuste analüüsimiseks ning kes teaksid, milliseks kujuneb nende roll transpordisüsteemis, ja oskaksid öelda, mida need endaga kaasa toovad. Väidetavalt sõltuvat selle valdkonna asjatundlikkuse tase ministeeriumides suuresti ametnike isiklikust taustast, huvist ja võrgustikust, mitte aga strateegiliselt suunatud värbamis- ja tööhõiveprogrammidest. Valitsusasutuste sellealase võimekuse vähesust süvendab vastutuse killustatus ja ebapiisav kooskõlastus, millele eespool tähelepanu juhiti: väheseid olemasolevaid eksperditeadmisi ei kasutata tõenäoliselt ära optimaalseimal viisil. Selle põhjuseks on paljudel juhtudel nii piiratud reguleerimisala, mille raames asjaomastel ekspertidel on võimalik tegutseda, kui ka asjaolu, et institutsionaalne killustatus vähendab töötajate võimalusi oma oskusi ametlike koolituste ja töökohal toimuva õppe kaudu parandada. Valitsus- ja erasektori teadmised-oskused on suurel määral tasakaalust väljas. Sellest tulenevalt on kahtluse all ministeeriumite võimekuse nii mõneski olukorras eraettevõtjatega tõhusalt koostööd teha. Eelkõige puudutab see transpordiga seotud teenuste osutamiseks sobivate lepingutingimuste 115 väljatöötamist ja pakutavate teenuste kvaliteedi hindamist. See võib kaasa tuua suuri probleeme kulutustele vastava tulu kohta otsuste tegemisel, mille tagajärjel võib juhtuda, et valitsus maksab eraettevõtjate osutatavate teenuste eest liiga palju ja/või peab leppima kvaliteedi või ajakulu poolest ootustele mittevastava tulemusega. MKM-i ametnikud on transpordisektori innovatsioonihanke strateegiate võimalikest hüvedest teadlikud, seda nii tõhususe kui ka kulutustele vastava tuluga seoses, ning võtavad meetmeid, et see eesmärk saavutada. Näiteks osaleb MKM EL-i rahastatavas projektis, mille eesmärk on rakendada kommertskasutusele eelnevate hangete strateegiaid. Selliste hangete eesmärk on „panna tööstus proovile, et töötada välja avaliku sektori vajadusi rahuldavad innovaatilised lahendused”, kusjuures avaliku sektori hankijatel on võimalik täpsustada eelkõige seda, milliseid tulemusi nad ootavad, mitte seada tingmusi konkreetsetele tehnoloogilistele sisenditele (Euroopa Komisjon 2020).62 Ent seda tüüpi hanked ei ole täielikult lõimitud tavapärase hankemenetlusega, põhjuseks eelkõige spetsialiseerunud tööjõu vähesus. Tööjõu oskuste ja võimekusega seotud probleemid toodi ka transpordi ja liikuvuse arengukavas esile peamise põhjusena, miks pole välja töötatud transpordi innovatsiooni strateegiat. Uute liikuvusteenuste regulatiivsed ad-hoc-meetmed ei maksimeeri neist teenustest saadavat kasu, mis võiks toetada transpordipoliitika pikaajalisi eesmärke Eesti on koduks Boltile (varem Taxify), juba pikka aega tegutsenud edukale sõidujagamisteenuse vahendajale, mis laiendas hiljuti oma haaret ka kergliiklus- ja mitmesuguste muude teenuste, näiteks toidu kojutoomise valdkonda. Taxify alustas tegevust Tallinnas 2013. aasta sügisel, kuid ühistranspordiseaduse muudatused, mis võimaldasid temal ja teistel sõidujagamisteenuse pakkujatel hakata konkureerima taksosektoriga võrdsetel tingimustel, jõustusid alles neli aastat hiljem, 1. novembril 2017. Niivõrd pikk viivitus sobiva õigusliku lahenduse väljatöötamisel ja rakendamisel tekkis hoolimata sellest, et parlamendiliikmed olid toetanud sõidujagamisteenuse legaliseerimist juba peaaegu kolm aastat enne uue seaduse vastuvõtmist, 2015. aasta veebruaris, ja esitanud konkreetsed seaduse muudatused sama aasta detsembris. Sõidujagamise valdkonnas turulepääsunõuete kohandamisel tekkinud viivitus on põhjendatav mitme teguriga, millest nii mõnegagi on kokku puutunud ka teised riigid, kes on asunud reguleerima uudseid murrangulisi liikuvusteenuseid. Näiteks on Eesti, nagu paljude teistegi riikide, poliitikakujundajad pidanud silmitsi seisma turgu valitsevast rangelt reguleeritud taksoveosektorist lähtuva lobiga, mille korral on nõutud, et sõidujagamine tuleks ära keelata või tuleks seda rangelt piirata. Lisaks toimusid selle sektori õigusliku reguleerimise käigus esialgu kavandatud lähenemisviisis märkimisväärsed muutused. Need puudutasid konkreetseid asjaolusid, mis võiksid kõnealuse sektori arengule suurt mõju avaldada, näiteks kas sõidujagamisele tuleks kehtestada geograafilised piirangud ja kas tuleks nõuda elektroonilise rendisüsteemi kasutamist. Sellised kursimuutused tulenesid erinevatest seisukohtadest seoses sellega, kas ja millistes aspektides tuleks sõidujagamist käsitleda ühistranspordisüsteemi osana, s.t taksoveoga võrdväärsena. Seda võib omakorda näha osana laiemast probleemist: puudub strateegiline kindlatel põhimõtetel rajanev lähenemisviis, millest lähtudes saaks uusi liikuvusteenuseid käsitleda. Ühtlasi ei olnud Eestis 2020. aasta juuniks vastu võetud liiklusseaduse muudatusi, mille abil oleks tagatud elektrilistele tõukeratastele õigusraamistik. 2020. aasta mais teatati, et Tallinna linnavalitsusel tuleb kõigepealt otsustada, kas elektrilistele tõukeratastele üldse anda ametlik kasutusluba.63 Seda hoolimata asjaolust, et Bolt oli juba üle kahe aasta tagasi hakanud esimesena pakkuma linnaliikuvuse teenuseid, võimaldades oma platvormi kaudu kasutada nii sõidujagamist kui ka laenutada elektrilisi tõukerattaid, kusjuures Tallinnas olid elektrilised tõukerattad kasutusele võetud juba 2019. aasta suvel. 116 Uute liikuvusteenuste tarbeks selge, põhimõtetel rajaneva lähenemisviisi väljatöötamine oleneb suurel määral laiema poliitilise raamistiku – säästva linnaliikuvuse strateegia – olemasolust. Säästva linnaliikuvuse strateegia peaks andma ette selge kava, millise kuju linnaline liikumiskeskkond peaks omandama, milliseid eri transpordiliike puudutavaid muudatusi oleks selleks vaja teha ning kuidas need ellu viia. Seda küsimust käsitletakse üksikasjalikumalt jaotises 2.5 „Kasutajate käitumise ja ühistranspordipoliitika juhtimine“. Transporditaristu ja -teenuste kohta pole välja töötatud ühtegi kliimamuutustega seotud riskihindamise kava Mitmed rahvusvahelised organisatsioonid on juhtinud tähelepanu transporditaristu varade kaitsmisel ja nende funktsionaalsuse hoidmisel lahendamist vajavatele probleemidele, arvestades kliimamuutustega kaasnevaid ja üha sagedamini esinevaid äärmuslikke ilmastikunähtusi. Näiteks Maailma Teede Assotsiatsioon (PIARC) soovitab järgmist. Rannikuäärsed teed ja sillad tuleb tõsta kõrgemale. Välja tuleb töötada uued konstruktsioonielemendid, mis peaksid vastu rannikualasid üha sagedamini tabavatele tugevatele tormidele. Drenaaži läbilaskevõimet tuleb suurendada, et tulla toime senisest suuremate paduvihmadega ja vähendada üleujutuste ohtu. Kasutada tuleb kuumuskindlaid materjale ja seadmeid, sest hinnangute kohaselt on kõrge temperatuuriga päevi varasemast rohkem. (PIARC, 2016) Rahvusvaheline Transpordifoorum (2016) on märkinud, et üksikute taristuvarade tasemel on nende teemadega keeruline tegelda, kuna enamik kliimamudeleid on suhteliselt ebakindlad ja suudavad harva anda täpset teavet konkreetsetes asukohtades avalduva mõju kohta. Sellest hoolimata tuleks uute taristuvarade kasutamisel – nii asukoha kui ka kasutusviisi suhtes – kliimamõju arvesse võtta, et sellega kaasnevaid riske võimalikult suurel määral maandada. Olemasolevate taristuvarade puhul mõjutab kliima nende hooldamise ulatust ja sagedust ning võib kaasa tuua muudatusi taristu kasutusviisis. Kuna suurem osa 30 aasta pärast kasutusel olevast transporditaristust on juba välja ehitatud, seisneb probleem eelkõige mõjus, mida kliimamuutused avaldavad olemasolevale taristule. Makrotasandil peavad valitsused tagama süsteemide üldise vastupidavuse olukorras, kus üksikute taristuobjektide kasutuskõlbmatuks muutumise oht on varasemast suurem. Vastupidavuse tagamine tähendab selles kontekstis taristuobjekti kasutuskõlbmatuks muutumisega süsteemile kui tervikule kaasneva mõju minimeerimist. Süsteemi vastupidavus muutub aja jooksul järjest tähtsamaks, sest kliimamuutuste tõttu taristutõrgete esinemissagedus tõenäoliselt kasvab. Eelkõige on ohustatud just vanem taristuvara. Eesti ametnikega peetud aruteludest on näha, et nad on teadlikud vajadusest arvestada transpordiinvesteeringute tegemisel ja asjaomaste teenuste pakkumisel kliimamuutuste riski, muutmaks transpordisüsteem tervikuna n-ö tulevikukindlaks. Ametnikud on juhtinud tähelepanu sellelegi, et koostatud on „Kliimamuutustega kohanemise arengukava aastani 2030“ (Eesti Vabariigi Valitsus, 2017). Kohanemiskava eesmärk on suurendada riigi, regionaalse tasandi ja kohaliku omavalitsuse üksuste valmisolekut ja võimekust kliimamuutuste mõjuga kohaneda. Ühtlasi on seatud alaeesmärgid kaheksas prioriteetses valdkonnas, sealhulgas taristuga seoses. Kohanemiskavas on selgesõnaliselt mainitud mitut järelmit, mis kliimamuutuste tõttu transporditaristule kaasneda võivad; samuti on toodud välja hoolduskuludele avalduv mõju. Ent kava elluviimiseks plaanitud kulud on taristusektoris tervikuna (sh transpordi ja muud valdkonnad) äärmiselt tagasihoidlikud, kaheksa prioriteetse sektori kohta kokku ainult 320 000 eurot 43,7 miljonist eurost. Suurem osa neist kuludest on eelarves ette nähtud aastateks 2017– 2020. 117 Arengukavas on esile toodud „kliimamuutuste mõjuga kohanemisega seotud arenguvisiooni dokumendid“ ja teiste hulgas on ära märgitud ka „Transpordi arengukava 2014–2020“ (Eesti Vabariigi Valitsus, 2017). Ent ükski kavas käsitletud tegevusvaldkond ei näi seostuvat konkreetselt transporditaristut puudutava kohanemisega. Kliimamuutustega kohanemise kava, milles käsitletakse neid teemasid riiklikul tasandil ja valdkonnaüleselt, on lähtepunktiks üksikasjalikuma ja valdkonnapõhisema kava koostamiseks, mille abil tagada, et transporditaristu kujundamisel arvestataks võimalikult suurel määral ka sellega, et taristu suudaks vastu pidada kliimaga seotud ohtudele. Ent neis valdkondades tuleb võtta märkimisväärseid meetmeid, tagamaks, et seatud eesmärgid saavutataks ka praktikas. Seega on Eesti transpordi ja liikuvuse arengukavades vaja käsitleda kliimamuutustega kohanemise ja vastupidavuse probleeme ka transporditaristu kontekstis. Ilmastiku ja kliimaga seotud ohud on kontrollitavad. Taristuvara haldajad saavad ja ühtlasi peavadki neid taristute kavandamisel arvesse võtma. Kuna kliimaparameetrid võivad muutuda ettearvamatult, kaasnevad juhul, kui kliimamuutustele vastupidavust süsteemi kui terviku tasandil ei käsitleda (sealhulgas uute või täiustatud otsustusmudelite väljatöötamise kaudu), järgmised ohud:  taristu kavandamise standardid ei ole piisavalt täpsed, mille tagajärjeks on taristutõrgete esinemine ja/või teenuste halvenemine;  standardeid täpsustatakse üleliia, mille tagajärjeks on ebatõhusad investeeringuid. Niisiis, kui kliimamuutustega kohanemist süstemaatiliselt ei käsitleta, avaldab see olulist mõju taristu tõhususele ja taristuga seotud kuludele. Reformi valdkonnad Eelnevas arutelus on esile toodud Eestis esinevad probleemid, mis johtuvad strateegia puudumisest, ebapiisavast asutustevahelisest kooskõlastamisest ja pädeva personali nappusest. Need kitsaskohad takistavad Eestil uusi ja kujunemisjärgus olevaid transporditehnoloogiaid täiel määral ära kasutada ning samal ajal pikaajaliste investeerimiskavade järjepidevust, sidusust ja selgust tagada. Alljärgnevalt on välja toodud peamised võimalused, kuidas neid probleeme tõhusalt ja kooskõlastatult lahendada. Seada transpordisüsteemi innovatsiooni jaoks selged eesmärgid ja prioriteedid Eesti peaks oma transpordiinnovatsiooni poliitika eesmärgid paremini sõnastama. Eesmärkide ja prioriteetide selge sõnastamine on vajaminevate strateegiate ja protsesside väljatöötamise ning nende teostamiseks nõutavate ressursside kindlakstegemise eeltingimuseks. Eesmärgid ja prioriteedid peaksid olema laiahaardelised, kajastades tehnoloogia ja ettevõtlusega seotud uuenduste potentsiaali täita võtmerolli kogu transpordisüsteemis paremate majanduslike, sotsiaalsete ja keskkonnaalaste tulemuste saavutamisel. Samuti peaksid need olema kooskõlas transpordi ja liikuvuse arengukava eesmärkidega ning käesoleva aruande eri peatükkides esitatud soovitustega. Eesmärkide ja prioriteetide kujundamist ja määratlemist peaks juhtima MKM-i strateegilise poliitika osakond. Kavandatav tehniliste vahendite keskus (TVK), mis peaks toimima tehnilise ekspertiisi keskusena paljudes seotud valdkondades, peaks siinkohal täitma keskset rolli. Protsess peaks hõlmama ka pidevat lävimist mitmete innovatsioonile keskendunud asutustega nii Eesti valitsussektoris kui ühiskonnas laiemalt. Nendega peetav dialoog peaks moodustama eesmärkide seadmise lahutamatu osa. See aitab tagada, et seatud eesmärgid ja prioriteedid oleksid kooskõlas valitsuse poliitikaga ja majanduses ilmnevate suundumustega. Samuti tuleks selle protsessi raames arvesse võtta käesoleva aruande teistes osades (nt jaotises 2.5 „Kasutajate käitumise ja ühistranspordipoliitika juhtimine“) antud innovatsioonisoovitusi. 118 Pidada struktureeritud dialoogi olulisimate innovatsioonile keskendunud asutustega Eelnenud arutelust ilmnes, et Eestis on palju innovatsioonile keskendunud asutusi. Nende hulka kuuluvad mitmesugused valitsuse ja parlamendi tasandil tegutsevad teaduse ja tehnoloogia nõukogud ja nõuandekogud, nii need, mis tegutsevad asjaomaste ministeeriumite alluvuses, kui ka need, mis tegutsevad ülikoolide juures ja ettevõtlussektoris. Ühtlasi on Eesti rahvusvahelisel areenil tuntud edu poolest, mis teda on saatnud uuenduslike tehnoloogiate ja teenuste kasutamisel, parandamaks avaliku sektori teenuste osutamist ja kodanikega suhtlemist. Need tegurid võimaldaksid Eestil tegutseda transpordisektoris ettevaatavalt ning tehnoloogia ja ärimudelite innovatsioonist saadavat kasu võimendada. Ent praegune transpordisektori killustatus seab heade tulemuste saavutamise ohtu. Seega, kui äsjakirjeldatud võimalust tahetakse ära kasutada, tuleb eri üksuste vahelist koostööd ja nende tegevuse kooskõlastamist oluliselt paremaks muuta. Arvestades paljude innovatsiooniasutuste tegevuse haaret, ei piirdu see probleem üksnes transpordisektoriga. See teema jääb küll käesoleva aruande raamidest väljapoole, aga olgu öeldud, et kui kogu valitsuse tasandil parandataks innovatsioonipõhiste organite omavahelist kooskõlastatust, nii avalikus kui ka erasektoris, siis tooks see tõenäoliselt kaasa märkimisväärset kasu. Eespool kirjeldatud näide 5G-tehnoloogia sektoritevahelise mõju kohta toob esile laiahaardelisema lähenemisviisi võimalikud eelised. Konkreetselt transpordiga seotud ettevõtmisi saab ellu viia ka laiema kooskõlastuse puudumisel. Mitmed Eesti valitsusorganid, sealhulgas Maanteeamet ja MKM, on transpordiinnovatsiooni koostöövõrgustiku ITS Estonia liikmed. Tegemist on võrgustikuga, mis ühendab intelligentsete transpordisüsteemide (ITS) valdkonnas tegutsevaid organisatsioone nii avalikust, era- kui ka kolmandast sektorist ning mis toimib koostöö ja innovatsiooni platvormina.64 Koostöövõrgustiku tegevuses osalemist on võimalik täiustada struktureeritud dialoogi kaudu. See peaks hõlmama enamat kui intelligentsete transpordisüsteemide IKT- külge ning teisalt olema suunatud strateegilise aspekti kujundamisele, selgitamaks välja, kuidas lõimida transpordiinnovatsioon transpordi ja liikuvuse arengukavasse. Dialoogi tuleks pidada pikema aja jooksul, et edasiminekut oleks võimalik kontrollida ning arengukava ja transporditehnoloogia tegevuskava (vt altpoolt) läbi vaadata ja ajakohastada. MKM peaks pidama struktureeritud dialoogi mitmesuguste innovatsioonile keskendunud asutustega, kus tegeldakse transpordisektori probleemidega või selliste tehnoloogiatega, mis võivad transpordiga seoses avaldada olulist mõju. Nende asutuste vahelise suhtluse parandamine teabevahetuskanalite pakkumise ja koostöö edendamise kaudu peaks oluliselt vähendama dubleerimisest ja tegevuse kattumisest tulenevaid tarbetuid kulutusi ning soodustama spetsialiseerumist ja suurendama suhtelist eelist. Tihedama lävimise kaudu saab MKM rohkem teada asjaomaste organite võimekusest ja rõhuasetustest ning selle tulemusena suudab ta valitsuses paremini selgitada, mis on vaja nende rolle selgemini piiritleda ja kuidas seda teha. Transpordisektori innovatsiooni vallas konkreetsete eesmärkide ja prioriteetide seadmine, nagu eespool käsitletud, toetab seda koostööd, kuna nii määratakse kõigi sidusrühmade jaoks selgelt kindlaks ametliku koostöö ja kooskõlastamise sihid. Teisalt on eesmärkide ja prioriteetide kujundamise raames innovatsioonile keskendunud asutustega lävimine kasulikuks lähtepunktiks, millele tuginedes dialoogi edaspidi arendada ja süvendada. Ühtlasi on eesmärkide ja prioriteetide kindlaksmääramine oluliseks lähtepunktiks transporditehnoloogia tegevuskava väljatöötamisel, nagu allpool soovitatud. Töötada transpordi ja liikuvuse arengukava osana välja transporditehnoloogia tegevuskava Tekstikastis 3 on esitatud näide ühest transporditehnoloogia tegevuskavast, milles on kindlaks määratud kava peamised komponendid ning eesmärgid, mis selle kava kaudu täita tuleb. Ametlik transporditehnoloogia tegevuskava aitaks Eestil korraldada tööd seoses tehnoloogia edasise mõjuga 119 transpordile; kavaga seotud ettevõtmisi viiksid läbi mitmesugused organisatsioonid nii valitsussektoris kui ka mujal. Kava aitaks tagada töö strateegilist juhtimist ning selles sisalduvaid järeldusi saaks transpordi ja liikuvuse arengukava kaudu ellu rakendada. Nii oleks lihtsam kooskõlastada eri organisatsioonide tööd, kes nende teemadega tegelevad, väljendades seejuures valitsuse arusaama transporditehnoloogia arengust. Arvestades MKM juhtrolli liikuvuse arengukava koostamisel, peaks ministeerium võtma vastutuse ka transporditehnoloogia tegevuskava koostamise eest. Transporditehnoloogia tegevuskava peaks selgitama, millised on transpordiinnovatsiooni puhul valitsuse poliitilised prioriteedid ja suundumused. See peaks tingimata arvestama ka Euroopa Komisjoni strateegilist suunitlust ja komisjoni tehtud teadusuuringuid, sealhulgas alljärgnevat:  strateegiline transporditehnoloogia kava kui transpordialaseid teadusuuringuid ja innovatsiooni ning nende juurutamist hõlmav strateegiline raamistik, mis põhineb 2011. aasta valgel raamatul (Euroopa Komisjon, 2011), mille eesmärk on kujundada 2050. aastaks välja terviklik, tõhus, ohutu, turvaline ja keskkonnasäästlik Euroopa transpordisüsteem; ja  transpordialaste teadusuuringute ja innovatsiooni strateegiline kava65, mis on koostatud programmi „Horisont 2020“ raames. Austraalia Uus-Lõuna-Walesi osariigi valitsuse vastu võetud tuleviku transporditehnoloogia tegevuskava (Uus-Lõuna-Walesi osariigi valitsus, 2016) on hea näide transporditehnoloogia tegevuskavast. Tegevuskava on esitatud allolevas Tekstikast 3. 120  Tekstikast 3. Uus-Lõuna-Walesi osariigi tuleviku transporditehnoloogia tegevuskava Uus-Lõuna-Walesi osariigi tuleviku transporditehnoloogia tegevuskavas on välja toodud 12 kujunemisjärgus olevat tehnoloogiat, mille puhul arvatakse, et need võivad transporti muuta. Need on jaotatud nelja kategooriasse:  kliendiliidese tehnoloogiad;  andmete ja analüüsiga seotud tehnoloogiad;  taristutehnoloogiad;  sõidukitehnoloogiad. Tegevuskava peamine siht on teadvustada, kuivõrd oluline on ühiskonna reaktsioon eri tehnoloogiate suhtes, ja selgitada välja, millist rolli need tehnoloogiad võivad transpordisüsteemide muutmisel täita. Selle tulemusena on esile toodud neli stsenaariumit, mis võivad järgmise 20 aasta jooksul teostuda. Need stsenaariumid aitavad kindlaks teha peamised probleemid ja tagajärjed, millele võib olla vaja tähelepanu pöörata, arvestades igasuguseid erinevaid väljundeid, mille kujunevad tehnoloogiad võimalikuks teevad. Need põhinevad alljärgneval:  automatiseeritud sõidukitele kasutusloa andmise korral kindlaksjäämine seni valitsevale suunale kasutada erasõidukeid;  segamudel, mille korral omandavad senisest suurema osakaalu nõudluspõhise transpordi teenused;  ühistranspordi osakaalu märkimisväärne suurendamine teenuse parandamiseks tehtud investeeringute kaudu;  transpordinõudluse oluline kahanemine tänu n-ö virtuaalse ligipääsetavuse võimaluste laialdasele rakendamisele. Tegevuskava toob esile ka viis strateegiat, mida transpordiamet peab järgima, et tulla toime tehnoloogilise arengu ja ühiskonna reaktsiooniga ning arendada välja innovaatiline ja n-ö kliendikeskne transpordimudel. Need strateegiad on järgmised: kliendisuhtluse isikupärastamine; ühistranspordivõrgu ümberkujundamine; nõudlusel põhinevate jagamisteenuste pakkumise soodustamine; omavahel ühendatud ja automatiseeritud sõidukiplatvormide lubamine; intelligentsete andmepõhiste transpordivõrkude loomine. Allikas: Uus-Lõuna-Walesi osariigi valitsus (2016). Transporditehnoloogia tegevuskava tuleks rahvusvaheliste ekspertide abil regulaarselt üle vaadata ja uuendada, et tagada selle asjakohasus praeguses ebakindlas ja kiiresti muutuvas ühiskonnas. Ehkki tegevuskava pidev ajakohastamine on hädavajalik, peab see toimuma selgelt sõnastatud põhimõtete alusel, tagamaks rakendatava lähenemisviisi järjekindlus ja võimaldamaks teenuseosutajatel olukorda prognoosida. Transpordipoliitika tegevuskava alusel saaks välja arendada transpordipoliitika mitu olulist mõõdet:  teadus- ja arendustegevuse rahastamise strateegia;  transporditeenuste hankestrateegia; 121   sektori reguleerimise strateegia. Mitu Rahvusvahelise Transpordifoorumi liikmesriiki on hiljuti koostanud põhjalikud ülevaated mõju kohta, mida muutuv tehnoloogia transpordisektorile avaldab. Eesti valitsus võiks oma transporditehnoloogia tegevuskava ja sellega seotud strateegiate väljatöötamisel nende riikide kogemusi arvesse võtta. Näiteks avaldas Ühendkuningriigi valitsus 2019. aasta märtsis oma tegevuskava „Liikuvuse tulevik: linnastrateegia“. Selle eesmärk on teha järgmist: „… uurib uut tüüpi sõidukite, sealhulgas elektriliste tõukerataste ja kaubaveoks kasutatavate elektrijalgrataste haagiste kohta käivaid eeskirju, kuidas andmete jagamine saaks ummikuid vähendades teenuste osutamist parandada ning kuidas saaks reisi kavandamist ja selle eest tasumist lihtsamaks muuta. Samuti käsitletakse selles laiahaardelises ülevaates 19. sajandist pärinevate, innovatsiooni takistavate seaduste moderniseerimist.“ (Ühendkuningriigi valitsus, 2019) Ühendkuningriigi strateegia hõlmab ka nelja nn tulevikuliikluse tsooni (ingl future mobility zones) loomise rahastamist, et maksesüsteemide, reisiinfo ja eri transpordiliikidega seotud uuenduslikud ideed proovile panna ning selle tulemusena linnaliikluse mugavust, usaldusväärsust ja kulutõhusust parandada. Peale selle on strateegias välja toodud üheksa põhimõtet, millele valitsuse rakendatav lähenemisviis linnaliikuvuse innovatsiooni soodustamisel tugineb. Need käsitlevad süsteemide lõimimise, ohutuse, säästvuse, tarbijahüvede, avatud turu, teabevahetuse ja aktiivse transpordi edendamisega seotud teemasid. Austraaliast võib leida teise näite kõrgetasemelise lähenemisviisi kohta, kuidas käsitleda transpordis toimuvate tehnoloogiliste muutustega kaasnevaid küsimusi. Seal asutas valitsus 2018. aasta lõpul Tuleviku Transporditehnoloogia Ameti. Ameti volitused on piiratumad kui Ühendkuningriigi näite puhul, kuna ta tegeleb üksnes autonoomsete sõidukite valdkonnaga. Sellest hoolimata kuulub ameti pädevusse üsna suur hulk ülesandeid, mille käigus „valmistatakse ette autonoomsete sõidukite kasutuselevõttu Austraalias“, seejuures tehakse koostööd kohalike omavalitsustega. Tuleviku Transporditehnoloogia Amet on asutatud valitsuse riikliku maismaatranspordi tehnoloogia raamistiku alusel, mis seab valitsusele järgmised neli ülesannet:  poliitika juhtimine – tehnoloogilises keskkonnas toimuvatele muutustele reageerides rakendada eri valitsemistasanditel selget riiklikult kooskõlastatud lähenemisviisi;  võimaldamine – tagada, et erasektor saaks uut kasulikku tehnoloogiat turule tuua;  toetava regulatiivse keskkonna kujundamine – veenduda, et kogukonna ootusi ohutusele, turvalisusele ja privaatsusele võetaks uute tehnoloogiate juurutamisel nõuetekohaselt arvesse;  investeerimine – investeerida teadusuuringutesse, arendustegevusse ja n-ö päris maailmas tehtavatesse katsetesse, millest oleks kasu kogu transpordivõrgu kliendibaasil või mis looks valitsusele otsuste langetamiseks (sh koostöö erasektoriga) tugeva aluse.66 Tuleviku Transporditehnoloogia Amet vastutab poliitika kooskõlastamise eest konkreetselt taristuvaldkonnas, aga ka muudes lähedalt seotud valdkondades nii keskvalitsuse kui ka kohaliku omavalitsuse tasandil, samuti on tema ülesanne kaasata nende teemade arutelusse kogukond. Tehnoloogiliste muutuste mõju transpordisektorile võib strateegiatasandil käsitleda ka nii, nagu seda on tehtud Uus-Meremaa transpordiameti programmis „Regulation 2025“ („Regulatsioon 2025“). Selle raames uuriti tehnoloogia võimalikku mõju transpordisüsteemidele ja ühiskonna valmisolekut uusi tehnoloogiad rakendada. Keskmes oli küsimus, kas piisab sellest, kui valitsused kehtivat õigust lihtsalt kohandavad, et see vastaks ka tulevikus tekkida võivatele vajadustele, või on vaja teha põhjalikumaid õiguslikke muudatusi. 122 See projekt hõlmas mitmesuguste teadusuuringute tegemist, mis käsitlesid kõnealust teemat eri aspektidest (Uus-Meremaa valitsus, 2016).67 Moodustada kavandatavas transpordiuuringute keskuses spetsiaalne töörühm, mis töötaks välja transporditehnoloogia tegevuskava ning aitaks seda lõimida transpordi ja liikuvuse arengukavaga Jaotises 2.1 „Asutuste struktuur“ on soovitatud, et MKM-i juures tegutsev piisavate ressurssidega strateegilise poliitika osakond peaks vastutama kõigi transpordiliikide strateegilise poliitika kujundamise eest ja selle alluvusse peaks kuuluma ka tehniliste vahendite keskus. Tehniliste vahendite keskus peaks olulistes valdkondades tagama suure tehnilise võimekuse ning selle kaudu toetama MKM-i võimet tegevusi strateegiliselt kavandada ja koostada kvaliteetseid hankestrateegiaid. Tehniliste vahendite keskus peaks toimima ka transporditehnoloogia arendamise ekspertiisikeskusena. Samuti tuleks sel juhtida transpordipoliitika tegevuskava kujundamist. Jaotises 2.1 „Asutuste struktuur“ on soovitatud, et valitsuses analüütikute rolli ja mõju suurendamiseks peaks tehniliste vahendite keskust juhtima transpordi peaökonomist ja teda toetama riigihangete juht. Ametisse võiks nimetada ka transporditehnoloogia juhi, kelle peamine ülesanne oleks töötada välja transporditehnoloogia tegevuskava. Nii oleks poliitika kujundamisel olemas üks konkreetne kese, otsustamaks, millises suunas ja kui kiiresti tehnoloogiline areng transpordisektoris toimuma peaks. Ühtlasi kaasneks sellega kaks omavahel seotud eelist:  oleks selge, et eelkõige MKM on see organisatsioon, kes vastutab transporditehnoloogia uuringutesse kaasatud osapoolte vahelise koostöö ja teabevahetuse korraldamise eest;  tagataks, et transporditehnoloogia probleemide analüüsimise kese asub MKM-is, s.t organisatsioonis, kes esmajärjekorras vastutab transpordi pikaajalise planeerimise eest, kasutades selleks transpordi ja liikuvuse arengukava. Jaotises 2.1 on soovitatud sedagi, et strateegilise poliitika osakonna vastutusalasse peaks kuuluma kõrgetasemelise transpordimudeli loomine, mida on käsitletud jaotises 2.2 „Taristu kavandamine ja projekti valimine“. Arvestades transporditehnoloogiaga seotud teemade olulisust tuleviku transpordimudelite koostamisel, on põhjendatud jätta nende teemade kooskõlastamine just selle osakonna ülesandeks. See tähendab, et transporditehnoloogia tegevuskava võiks moodustada peamise sisendi transpordimudelile, mis omakorda mõjutaks transporditehnoloogia tegevuskava võtmeelementide ajastust ja järjestust. Transporditehnoloogia tegevuskava tuleks välja töötada koostöös selliste Eesti uurimisasutustega nagu Infoühiskonna Nõukogu, Teadus- ja Arendusnõukogu, e-Eesti nõukogu ning Teadus- ja Haridusministeerium, samuti koostöös asjaomaste EL-i üksustega (näiteks teadusuuringute ja innovatsiooni peadirektoraat, liikuvuse ja transpordi peadirektoraat). Strateegilise poliitika osakonnas tuleks ametisse nimetada vanem-andmeteadlane, kes aitaks tagada, et transpordi kavandamine tugineks õigeaegsetele ja kvaliteetsetele andmesisenditele. Selle teema olulisust rõhutati korduvalt Rahvusvahelise Transpordifoorumi nõupidamistel, millest võtsid osa ka valitsusametnikud ja ettevõtete esindajad. Tunti muret selle pärast, et kättesaadavaid andmeid pole piisavalt ja andmete analüüsimise võime on puudulik. Lisaks jäetakse tihtipeale kasutamata võimalused transpordiandmeid väärtusloomes rakendada, mis osaliselt tuleneb regulatiivsetest piirangutest. Vanem- andmeteadlase põhiülesanne oleks teha kindlaks, millistes asutustes milliseid andmeid hoitakse, seda tedamist teistega jagada ning töötada selle nimel, et andmete kättesaadavus aja jooksul paraneks. Seda saaks teha andmebaaside parema ühendamise ja kasutuslepingute sõlmimise abil ning usaldusväärse keskandmebaasi moodustamisest saadavat kasu uurides. Seoses võimalustega arendada liikuvuse kui teenuse (ingl Mobility-as-a-Service, MaaS) platvorme muutub see teema tõenäoliselt järjest olulisemaks. 123 Rakendada uute liikuvusteenuste reguleerimisel soosivat ja kindlatel põhimõtetel rajanevat lähenemisviisi, mis oleks seotud linnaliikuvuse kavadega Murrangulised tehnoloogiad esitavad valitsuste õigusloomealasele tegevusele paljudes valdkondades suuri väljakutseid. Need toovad turgudel ja teenuste osutamisel kaasa kiireid muutusi, millele tavapärane õigusloomesüsteem ei suuda tihtipeale piisavalt kiiresti reageerida. Turgude ja sektorite senised piirid osutuvad tihtipeale ülearuseks, mistõttu seaduste kohaldamine muutub keerulisemaks ja esineb halduspiiride ületamist, seda nii riigisiseses kui ka rahvusvahelises plaanis. Teisalt on seadustel ja määrustel väga suur mõju määrata ära kiirus ja suund, kuidas uued tehnoloogiad arenevad, ning millist kasu need ühiskonnale toovad. Valitsused peavad suhtuma tasakaalukalt vajadusse soodustada innovatsiooni ja tehnoloogiast tulenevaid murranguid, tagades samal ajal inimeste ja ettevõtjate piisava kaitstuse (OECD, 2020). Viimastest aastatest võib uute liikuvusteenustega kaasnenud muutustest leida üksjagu näiteid. Nad on paljudes maailma linnades senise transpordimaastiku kiiresti ümber kujundanud. Nad on avardanud tarbijate valikuvõimalusi ja suurendanud kiiresti oma turuosa – seda kõike tänu uute tehnoloogiate ja/või uute ärimudelite kombineerimisest tulenevale heaolu kasvule. Mõnel juhul on saadav kasu seisnenud uute teenuste võimes juhtida tähelepanu ajale jalgu jäänud regulatiivsetele korraldustele, millest avaliku hüve seisukohast enam kasu ei ole, ja seada nende vajalikkus kahtluse alla. Lähiaastatel avaldavad murrangulised tehnoloogiad ja ärimudelid transpordisektoris varasemast tõenäoliselt veelgi suuremat ümberkorraldavat mõju, kui linnamaastikul kinnitavad kanda sellised märkimisväärsed uuendused nagu droonid, autonoomsed sõidukid ja MaaS-teenused. Kui uutest teenustest ja mudelitest saadavat kasu tahetakse realiseerida ning nende kasutamisega seotud kulu ja negatiivset välismõju minimeerida, peavad valitsused õigel ajal nende teenuste ja mudelite kohta mõistlikud regulatsioonid kehtestama. Kõige lihtsam on seda saavutada siis, kui poliitikakujundajad tegutsevad regulatsioonide väljatöötamisel hästi läbimõeldud ja kindlatele põhimõtetele tuginevas raamistikus. Eestil on oluline seda rada järgida. Seda näitavad kas või pikk ja täiesti ilmselt segadust tekitav lähenemisviis, mida Eestis sõidujagamisteenustele kohaldatakse, ning eespool kirjeldatud asjaolu, kuidas elektriliste tõukerataste puhul jäi kindel õigusraamistik kehtestamata. Tekstikast 4 on esitatud Rahvusvahelise Transpordifoorumi soovitused põhimõtetel rajaneva lähenemisviisi kohta. Laiemas plaanis osutab OECD õiguspoliitika alane töö valitsuste vajadusele reageerida murranguliste tehnoloogiatega kaasnevatele probleemidele juhtimisinnovatsiooni (ingl governance innovation) rakendades, mis võimaldab õigusaktide ja nende jõustamise puhul kasutada dünaamilisemat, paindlikumat ja tehnoloogia suhtes neutraalsemat lähenemist (OECD, 2020). Otsustades, kuidas murrangulisele uuendusele reageerida, on kõige olulisem vastata küsimusele, millises etapis seda reguleerida. Liiga varase reguleerimisega – enne, kui on mõistetud selle turu dünaamikat, kus uut tehnoloogiat või ärimudelit kasutama hakatakse – kaasneb ilmselgelt suur oht, et kehtestatakse halvasti suunatud regulatsioon, millega kaasnevad ettenägematud kulud ja mille tõhusus kahjude ennetamisel ja nendega tegelemisel on vähene. Teisalt, sageli on uute turgude reguleerimise surve väga suur ja liiga ettevaatlik lähenemine võib mõnikord põhjustada olulist kahju. Seetõttu on kiiresti muutuvas keskkonnas kehtestatud regulatsiooni peamine omadus see, et regulatsioon oleks n-ö reageeriv, suudaks muutustega kohaneda. See tähendab, et erilist tähelepanu tuleks pöörata regulatiivsete mõjude järelseirele. Uute regulatsioonide eri aspektid tuleb lühikese aja jooksul üle vaadata või isegi ära muuta, kui selgitatakse välja nende ettenägematu mõju ja uut turudünaamikat hakatakse paremini mõistma. See lähenemisviis erineb tavapärasest vaatest õigusloomele, mille korral muudatusi püütakse teha võimalikult harva. Asjaolu, et Eestis on alates 2012. aastast kehtinud nõue viia läbi õigusaktide mõju järelhindamine, moodustab n-ö 124 kohandatava reguleerimise süsteemile toeka aluse, kuna järelhindamise korral mõõdetakse regulatiivset mõju esialgsete ootustega võrreldes ning seda kaalutakse süstemaatiliselt ja kvantitatiivselt. MKM peaks läbi viima õigeaegse ja põhjaliku õigusaktide mõju järelhindamise ning tagama, et tulemuste põhjal tehtaks vastavalt vajadusele õigel ajal asjakohased regulatiivsed muudatused. Sellist reageeriva reguleerimise põhimõtet saab ka laiendada, julgustades reguleerimisasutusi kujundama innovatsiooniprotsessis välja n-ö ennetava kaasamise (ingl anticipatory engagement) mehhanismi. Nii saab probleemid varakult kindlaks teha ning tehnoloogia arengut teistega koostöös suunata. See võib hõlmata katsetuslike regulatsioonimudelite – nn regulatiivsete liivakastide – kasutamist, mis võimaldavad kokkulepitud kontekstis piiratud tähtaja jooksul teha olemasolevatest normidest erandeid ja selle kaudu kõigil osapooltel kiiresti õppida. 125  Tekstikast 4. Põhimõtetel rajanev lähenemisviis uute liikuvusteenuste reguleerimiseks Säilitada uute liikuvusteenuste jaoks lubav õiguslik keskkond Üldjuhul tuleks omaks võtta lubav lähenemisviis, sest uutest liikuvusteenustest on praeguseks saadud märkimisväärset heaoluga seotud kasu ning tulevaste uuenduste suhtes ilmutatav tõrjuv hoiak osutub tõenäoliselt väga kulukaks. Üldjuhul tuleks uutele toodetele, teenustele ja tegevustele luba anda, välja arvatud juhul, kui on olemas konkreetsed usaldusväärsed andmed, mis näitavad, et neist saadav ühiskondlik kahju ületab saadava kasu. Kohelda turul juba tegutsevaid liikuvusteenuse pakkujaid ja uusi tulijaid võrdselt Asjaolu, et uued murrangulised tehnoloogiad ja ärimudelid võivad seni turul olnud ettevõtetele tekitada olulist kahju, ei õigusta nende senist seisundit kaitsva regulatsiooni kehtestamist. Kui valitsused soovivad n-ö vanade olijate kahju vähendada, tuleks kasutada muid poliitilisi vahendeid. Õiguslikud erinevused peaksid piirduma nendega, mis tulenevad ärimudelite erinevast turumõjust. Vaadata läbi liikuvusteenuste aegunud ja killustunud õigusraamistikud Kehtivad õigusaktid, mis põhjendamatult takistavad uute ärimudelite loomist, tuleb kiiremas korras läbi vaadata, et innovatsiooniga kaasnevatest hüvedest kasu saada. Samuti tuleks reformida õigusakte, mis põhjendamatult takistavad varasematel turuosalistel konkureerimist uute tulijatega, välja arvatud juhul, kui see ei ole õigustatud tarbijate ohutuse ja turvalisusega. Suunata regulatsioon selgelt kindlakstehtud turutõrgete lahendamisele Õigusakt peaks reguleerima selgelt kindlakstehtud turutõrkeid või olulisi võrdsuseprobleeme. Reguleerimisasutused ei tohiks tegutseda enne, kui uute ärimudelite turudünaamikat on piisavalt hästi mõistetud. Ent teatud juhtudel võib vaja minna ennetavat reguleerimist, et vältida kahju, mille tekkimine on selgelt ette nähtav. Võtta õigusaktide kavandamisel arvesse laiemat linnapoliitika keskkonda Regulatiivsete meetmete kavandamisel tuleks arvesse võtta tõenäolist mõju, mida uued liikuvusteenused avaldavad linnapoliitika eesmärkidele, sealhulgas saastamise, kliimamuutuste, ummikute, elamisväärsuse, juurdepääsetavuse ja ühenduvusega seonduvale. Samas peaksid poliitikakujundajad selgesti eristama eesmärke, mille saavutamiseks on mõttekas rakendada sektoripõhist regulatsiooni, ja eesmärke, mille puhul on otstarbekas võtta laiemaid meetmeid. Vajaduse korral maksta toetust ja kaaluda tugitaristusse investeerimist Kui uued liikuvusteenused võimaldavad pakkuda väikseima kulu eest olulisi sotsiaalseid või muid hüvesid (näiteks senisest paremad ühendusvõimalused, vähem ummikuid), võib olla põhjendatud kaaluda tugitaristu subsideerimist või sellesse investeerimist. Allikas: kohandatud Rahvusvahelise Transpordifoorumi materjali põhjal (2019). Peale selle, et uuenduslik tehnoloogia seab reguleerimisasutused silmitsi uute katsumustega, on oluline seegi, et uuenduslik tehnoloogia võib anda neile ka uued vahendid, mille abil olukorda paremini reguleerida. Näiteks võimaldab digitehnoloogia toetada reaalajas jälgimist ning keerukas andmete kogumine ja analüüsimine võimaldab kontrolli- ja uurimistegevust paremini suunata. Seega võib tehnoloogia õigusaktide täitmisele ja nende täitmise tagamisele märkimisväärselt kaasa aidata. 126 Ka koostööl põhinevad lähenemisviisid aitavad leida sobivamaid õiguslikke meetmeid. Ühelt poolt võib see hõlmata teise jurisdiktsiooni reguleerimisasutustega koostöö tegemist, mille käigus vahetatakse teadmisi ja kogemusi. Selline partnerlus võib kiirendada hästi kohandatud õiguslike meetmete väljatöötamist. Teisalt tuleks koostööd teha ka uue tehnoloogia kasutuselevõtjatega. Sidusrühmadega konsulteerimine on mis tahes kvaliteetse regulatiivse protsessi lahutamatu osa, ent iseäranis oluline on see uute tehnoloogiate ja teenuste puhul – sellisel juhul on tingimata vaja mõista tehnoloogiat, selle ohte ja eeliseid ning aluseks olevaid ärimudeleid. OECD värskeimas õiguspoliitika ja valitsemissüsteemide uuringus sai Eesti kuuest iREG-i näitajast viie puhul OECD keskmisest kõrgema tulemuse. Eesti süsteemi puhul võib esile tuua kolm olulist elementi: laialdaselt kasutatakse õigusaktide mõju hindamist, sealhulgas nii eel- kui ka järelhindamist; Riigikantselei juures tegutseb strateegiabüroo, mis koordineerib sidusrühmade kaasamist poliitikakujundamisse; ja moodustatud on Justiitsministeeriumi õigusloomekorralduse talitus, mis täidab juhtivat rolli õigusloomepoliitika põhielementide rakendamisel (OECD, 2018). MKM peaks nende üksustega igakülgset koostööd tegema, et uute liikuvusteenuste suhtes võetavad regulatiivsed meetmed oleksid võimalikult kvaliteetsed. Nagu eespool märgitud, peaks uute liikuvusteenustega seotud poliitika kujundamine (sealhulgas õigusaktide väljatöötamine) lähtuma säästva linnaliikuvuse strateegiast. Seda on üksikasjalikumalt käsitletud jaotises 2.5 „Kasutajate käitumise ja ühistranspordipoliitika suunamine“. Siinkohal tuleks silmas pidada, et regulatiivsed lähenemisviisid toetaksid säästva linnaliikuvuse strateegia eesmärke seoses kasutatavate transpordiliikide osakaalu ümberkujundamisega. Kõik sellised strateegiad lähtuvad seisukohast, et linnatransport peab olema suunatud ühis- ja aktiivse transpordi osakaalu suurendamisele. See saavutatakse nii positiivsete algatustega (ühistranspordi ja jalgratta kasutamise võimaluste ning vastava taristu parandamine) kui ka erasõidukite kasutamist pärssivate ettevõtmistega (teeruumi ümberkorraldamine, parkimise tasuliseks muutmine, parkimisvõimaluste ümberkujundamine, ummikutasude kehtestamine). Mitmed uued liikuvusteenused, näiteks elektrilised tõukerattad ja ühiskasutuses olevad jalgrattad, on säästva linnaliikuvuse strateegia eesmärkidega kahtlemata kooskõlas. Ent uuringute kohaselt pole sugugi selge, milline on läbitud sõidukikilomeetritele avalduv netomõju sõidujagamise korral? On tõenäoline, et teatud linnakontekstis mõjutavad laiemad poliitikameetmed ja avaram transpordikeskkond tulemust suuresti. Näiteks sõidujagamise motiveerimine teekonna algus- ja lõpuosa läbimiseks võib märkimisväärselt muuta sektori üldist sõidukikilomeetri mõju. Seega tuleb nii selle kui ka muude liiklemisvõimalustega (näiteks autonoomsed sõidukid) seotud õiguslikke probleeme käsitleda laiemas poliitilises kontekstis (Rahvusvaheline Transpordifoorum, 2019). Keskpikas perspektiivis on sarnased kaalutlused asjakohased ka autonoomsete sõidukite tarbeks poliitikameetmete väljatöötamisel. Koostada Eesti transpordisüsteemi jaoks üleriigiline kliimamuutustele vastupanu võime analüüs Nagu eespool märgitud, ei ole Eestis koostatud mitte ühtegi riiklikku kliimamuutuste ohu hindamise kava, kuigi Eesti ametnikud teavad, et transpordiinvesteeringute kavandamisel tuleb ka kliimaga seotud ohte arvestada. Transpordi ja liikuvuse arengukavas tuleks sätestada, millised on selles vallas Eesti lähenemisviisi põhisuunad. Kliimamuutustele vastupanu võimega seoses võetavate meetmete väljatöötamisel peaks Eesti silmas pidama Rahvusvahelise Transpordifoorumi hiljutises uurimuses esitatud põhimõtteid selle kohta, kuidas transpordisüsteeme kliimamuutustega kohandada. Kokkuvõte neist põhimõtetest on esitatud Tekstikast 5. 127  Tekstikast 5. Transpordisüsteemide kohandamine kliimamuutuste ja äärmuslike ilmastikuoludega Tegutseda kohe, et säilitada transporditaristu väärtus ja võrgustiku läbilaskevõime Vähemalt 50 aastase kasutuseaga taristuvarade kohta planeerimisotsuste tegemisel tuleb kindlasti arvesse võtta varaobjekti võimalikku avatust kliimaohtudele, ka asukohavaliku puhul. Lühema kasutuseaga taristuvarade korral tuleks kliimamuutuste mõju arvestada varaobjektide uuendamise kohta otsuste tegemisel. Kaitsta transporditaristut kliimaohtude eest seda nõuetekohaselt hooldades Korralik hooldus on võimas riskide maandamise vahend, mis aitab taristu haavatavust kliimamõjude suhtes vähendada. Andurite ja sidetehnoloogia abil saab hooldustöid õigesti korraldada. Valmistuda ette transporditaristu sagedasemateks ootamatuteks tõrgeteks Varahaldurid peaksid valmistuma ette ka sellisteks stsenaariumideks, kui korraga esineb mitu ohtu, mis toovad kaasa ootamatuid ja kumuleeruvaid tõrkeid. Erilist ohtu kujutab taristu ühispaiknemine. Ohustsenaariumideks ettevalmistumine nõuab sidusrühmade vahel head suhtlemist ja koostööd. Arvestada teenuse järjepidevuse kavasid koostades ka transpordi ja taristu ajutise kättesaamatuse võimalust Äärmuslike ilmastikuolude tõttu võivad transport ja taristu muutuda ajutiselt kasutuskõlbmatuks, ilma et need selle tagajärjel märkimisväärselt kahjustada saaks. Teenuse järjepidevuse kavad peaksid sisaldama marsruudi muutmise ja asendustranspordi kasutamise võimalusi ning plaane, kuidas probleemne varaobjekt kiiresti võrku tagasi ühendada. Hinnata varaobjektide ja võrgustiku haavatavust kliimamuutuste ja äärmuslike ilmastikuolude suhtes Haavatavuse hindamine võimaldab kohandamismeetmed võimalike tagajärgede põhjal tähtsuse järjekorda seada, kuid seda tuleb teha nii varaobjektide kui ka võrgustiku tasandil. Selle ülesande põhirõhk on riskianalüüsil. Keskenduda transpordisüsteemi kui terviku vastupidavusele, mitte üksnes tugeva taristu rajamisele Vastupidavust keskseks seadvate lähenemisviiside korral leitakse, et varaobjektide ajutised tõrked on vältimatud ning põhitähelepanu tuleb suunata tagajärgede leevendamisele. See tähendab, et taristu passiivse kaitsmise asemel püütakse olla valmis tõrkeid ohutult lahendama. Hinnata ümber transporditaristu liiasuse kontseptsioon Võrgustiku liiasusest on kasu eelkõige seal, kus kliimamuutuste tõttu võib esineda rohkem taristutõrkeid. Liiasuse väärtuse hindamiseks läheb vaja uusi metoodikaid. Mitte tugineda transporditaristu väärtuse hindamisel üksnes tasuvusanalüüsile Tasuvusanalüüsist on kasu siis, kui tulevikus avalduda võiva kliimamõju ilmnemise tõenäosust ja ulatust on võimalik kindlalt hinnata ning kui riski põhjal korrigeeritud diskontomäär ja kliimamõju ilmnemise ebakindluse kohta antud selged hinnangud võimaldavad tasuvusanalüüsi täiendada. Ent enamasti on kliimamõjudele iseloomulik suur ebakindlus, mistõttu ei ole mõtet neid tasuvusanalüüsi kaasata; see tähendab, et analüüsi tuleb täiendada muu metoodikaga. Töötada välja uued otsustamismeetodid, mis võtaksid hindamisel arvesse olukorra ebakindlust 128  Tasuvusanalüüsi võib täiendada selliste hindamismeetoditega nagu reaalsete võimaluste analüüs (ingl real options analysis, ROA) ja jõuline otsuste langetamine (ingl robust decision making, RDM), mis on kohandatud just sellisteks puhkudeks, kus tõenäosuslik teave puudub. Allikas: kohandatud Rahvusvahelise Transpordifoorumi materjali põhjal (2016). Küsimust, kuidas kohandada transporditaristu ja -teenused kliimamuutustele vastavaks, on põhjalikult uuritud juba rohkem kui kümme aastat. Euroopa Liit on sellega tegelnud alates 2009. aastast, kui avaldas valge raamatu „Kliimamuutustega kohanemine: Euroopa tegevusraamistik“ (EL, 2009)68. 2014. aasta rakendusmääruses (EL) nr 215/201469 on esitatud metoodilised üldsätted, mille alusel taotleda transpordiprojektidele kliimamuutustealaste eesmärkide saavutamiseks Euroopa Regionaalarengu Fondilt või Ühtekuuluvusfondilt rahastust. 2018. aasta aruandes „Climate Change Adaptation for Major Infrastructure Projects“ („Kliimamuutustega kohanemine suurte taristuprojektide puhul“, Euroopa Komisjon, 2018) on välja toodud olemasolevad allikmaterjalid, millest võib taristuprojektide arendajatel kliimamuutustega kohanemise käsitlemisel abi olla. Selles on esile toodud kliimamuutustega kohanemise head tavad, milleks on ainest saadud ametiasutuste ja uurimisinstituutide kogemustest. Kliimamuutustele vastupanu strateegiate väljatöötamisel peaks Eesti arvestama nii EL-i avaldatud materjale ja esitatud nõudeid kui ka teiste riikide ja rahvusvaheliste organisatsioonide koostatud rakendusraamistikke. Joonis 18 on esitatud näide Maailma Teede Assotsiatsiooni (PIARC) loodud raamistikust, mida eri riikide maanteeametid saavad oma töös kasutada. Raamistiku eesmärk on olla maanteeametitele suunavaks vahendiks, mille abil teha kindlaks kliimamuutustega kaasnevaid ohte ja mõjutatavaid varaobjekte. Samuti aitab see kohanemismeetmeid ja hindamistulemusi otsuste tegemisse kaasata. Joonis 18. Raamistik, mille alusel lõimida kliimamuutustega kohanemine transporditaristu kavandamisse Allikas: PIARC (2015). 129 Teise laialdaselt kasutatava abivahendi, mille toel kliimamuutustele vastupanu võimet analüüsida ja meetmeid kavandada, on välja töötanud Ameerika Ühendriikide Föderaalne Maanteeamet (FHWA). Tegemist on transporditaristu haavatavuse hindamise ja kohandamise raamistikuga, mille skeem on visandatud Joonis 19. Sarnaselt PIARC-i raamistikule on ka FHWA raamistikus kesksel kohal riskide hindamine ja nende prioriseerimine ning haavatavate asjaolude ja varaobjektide kindlakstegemine. FHWA raamistik hõlmab nii analüüsimise kui ka modelleerimisega seotud nõudeid ning toob esile sidusrühmadelt saadava tagasiside vajaduse. Lisaks kuuluvad FHWA lähenemisviis juurde mitmesugused toetavad analüüsivahendid:  kliimaandmete töötlemise tööriist;  maatriks, mis võimaldab dokumenteerida erisuguste transporditaristu varaobjektide tundlikkust ühe või teise kliimamõju suhtes;  juhend, mille abil hinnata transpordi kohandamise kava raames varaobjektide olulisust;  haavatavuse hindamise vahend (FHWA, 2018). Taylor (2018) märgib, et nii PIARC-i kui ka FHWA raamistikud on leidnud rahvusvahelises plaanis rohkesti rakendusi, kusjuures viimast kasutavad laialdaselt ka USA osariikide transpordiametid. Samalaadseid raamistikke on avaldanud ka ISO liikmesorganisatsioon Standards Australia (2013) ja Austraalia piirkondlik transpordiamet Transport for New South Wales. 130  Joonis 19. FHWA transporditaristu haavatavuse hindamise ja kohandamise raamistik Allikas: FHWA (2018) Eesti peaks kõigi transporditaristute kohandamisel, sõltumata taristu liigist, rakendama ühtset lähenemisviisi. Arvestades seda ja ühtlasi vajadust kaasata kliimamuutustega kohanemise strateegiad ka transpordi ja liikuvuse arengukavasse, peaks MKM-i strateegilise poliitika osakond selles protsessis juhirolli võtma. Tehniliste vahendite keskus võiks kindlaks määrata konkreetsed ekspertiisile esitatavad nõuded ja hallata lepingulisi kokkuleppeid, tagamaks, et protsessi läbiviimisse oleksid kaasatud eksperdid ja et nende panus oleks piisav. Nagu FHWA on rõhutanud, peaks ka sidusrühmadega konsulteerimine moodustama kohanemisstrateegiate väljatöötamise ja rakendamise lahutamatu osa. Üks viis sellise kaasatuse tagamiseks on pidada transporditehnoloogia tegevuskava väljatöötamise käigus tihedalt nõu arenguseireasutustega. 131  Märkused 132 3 2017. aasta uuringus öeldakse, et avaliku sektori investeeringute tõhusust ja tootlikkust saaks märkimisväärselt parandada, kui teha täiustusi selle juhtimises. Hiljutine Rahvusvahelise Valuutafondi dokument näitab, et riikides, mille asutused juhivad jõulisemalt avaliku sektori investeeringuid, on investeeringud prognoositavamad, usaldusväärsemad ja tõhusamad ning et nende asutuste tugevdamine suudab katta kuni kaks kolmandikku avaliku sektori investeeringute tõhususe erinevusest. Eelkõige on strateegiliste prioriteetide määratlemiseks ning investeerimiskavade omavaheliste sünergiate ärakasutamiseks vajalik hea koostöö investeeringute planeerimisel ning selge süsteem projektide valimiseks ja prioriteetsuse määratlemiseks (OECD 2017, lk 122). 4 Riigieelarve seaduse § 42 lg 1 sätestab, et riigiasutuste ja inspektsioonide põhimääruse kinnitab minister. § 42 lg 2 sätestab, mis peab põhimääruses sisalduma. 5 Maanteeameti põhimäärus, 55/2018, S7(8). 6 ITFi selleteemaline uurimistöö (ITF, 2018) käsitleb terviklikult erainvesteeringute rolli transpordis ning seda, kuidas neid oleks võimalik transpordisektoris kasutada. 7 Vt näiteks TTJA põhimääruse paragrahvi 11 lõikeid 1 ja 2, mis sätestavad vastavalt organisatsiooni ülesanded seoses ELi struktuurifondide rahastatud projektide ning transpordivaldkonna arendusprojektide algatamise ja juhtimisega. 8 2018. aasta riikliku taristu hinnang on saadaval siin: https://www.nic.org.uk/wp-content/uploads/CCS001_CCS0618917350-001_NIC- NIA_Accessible.pdf . 9 Infrastructure Australia vaatab üle ja kiidab heaks ärimudeleid, kus projekti esitajad taotlevad keskvalitsuse vahendeid riiklikult oluliste taristuprojektide toetamiseks. Austraalia sõltumatu taristu nõuandekogu ülesannetre ja tegevuse ülevaate leiate aadressilt https://www.infrastructureaustralia.gov.au/. 10 Eesti majandus- ja kommunikatsiooniministeeriumi 31. jaanuari 2020. aasta e-kirjaga ITFile edastatud teave. 11 Esialgses etapis ei pea need prognoosid tingimata põhinema suurtel kogustel, mille jaoks on vaja ühikuhindu (kasutada võib ka varasemate projektide põhjal saadud laiapõhjalisi ehituse komponentide prognoose). Ühikuhindade andmebaas ja sellest tuletatud hinnaindeks on aga siiski kasulikud tagantjärele analüüsis. Näiteks tuleks prognoose ja lõplikke kulusid võrrelda fikseeritud hindadega, et mõõta prognooside vigu ilma hinnakõikumiste mõju arvesse võtmata. 12 Tegu on üldise hinnangulise väärtusega, mida avaldatakse üldjuhul pakkumusega koos. 13 Eesti riigihangete register kogub põhiteavet iga avaliku sektori pakkumuse kohta, võimaldades jälgida pakkujate arvu iga pakkumuse all, erinevust pakkumuse eeldatava maksumuse ja võitnud pakkumise vahel jne. 14 Kui mitmeks lepinguks tuleks suur projekt jaotada ning kus peaksid jooksma nendevahelised piirid, st millised projekti tegevused peaksid kuuluma millisesse projekti. 15 Elluviimise mudel puudutab seda, kas projekti etappe tuleks kokku liita või mitte (nt kas kavandamine ja ehitamine on eraldi etapid või neid hangitakse ühe lepinguna) ning kas projekt põhineb võistlevuse põhimõtetel (st pakkumuste protsessis on esikohal hinnakonkurents) või koostööl. 16 Huvi korral võiks Eesti korraldada ekspertide külastuse Belgia mobiilsuse ja riiklike ehitustööde osakonda, mis vastutab kohaliku ehitustööde ühikuhindade andmebaasi eest. 17 Harvaesinev näide järelkontrolli süsteemsest lähenemisviisist pärineb Prantsusmaalt, kus kehtib seadus, mille kohaselt on teatud väärtust ületatavate tasuvusanalüüside audit kohustuslik ning suurtes projektides tuleb osa eelarvest eraldada selleks, et luua oluliste punktide transpordi vaatluskeskusi – need on väikesed meeskonnad, mille eesmärk on tulemuste kohta andmete kogumine. Suurbritannias tegeleb ettevõte Highway kõigi peamiste maanteeskavade tasuvusanalüüsi ja hanketulemuste järelhindamisega (POPE programm – https://www.gov.uk/government/organisations/highways-england/about/research#post-opening-project-evaluation-pope). 18 Keerukuse kvalifitseerimiseks puudub küll universaalne standard, kuid saadaval on mitu lähenemisviisi. Ühte neist rakendati FHWA (2016) uuringus. 19 https://www.gov.uk/government/publications/transport-infrastructure-efficiency-strategy 20 „Kui maanteid, sildu, kanaleid jms ehitatakse sellisel viisil ning neid toetab kaubandus, mis nende najal toimib, saab neid teha vaid sinna, kus kaubandus neid vajab ja seega sinna, kuhu neid tehtama peaks.“ (vaba tõlge) 21 https://www.theguardian.com/uk-news/2018/oct/29/hammond-abolishes-pfi-contracts-for-new-infrastructure-projects 133 22 Avaliku ja erasektori partnerlus võib aidata ka nõudluse riski aja jooksul hajutada, muutes Engeli, Fischeri ja Galetovicu (2020) välja töötatud tulude kõige väiksema jääkväärtuse mudelis kontsessiooni kestust. Teoreetiliselt võiks avaliku ja erasektori partnerlus hõlmata samu riskide hajutamise võimalusi kui riigiettevõtted, kuid väga suured avaliku ja erasektori partnerluse lepingud piiravad konkureerivate ettevõtete arvu, kahjustades nii avaliku ja erasektori partnerluse lepingute konkurentsi kui põhjustades tühikulusid ja põhjendamatut ülekannet avalikust erasektorisse. 23 https://www.eib.org/epec/ 24 https://pppknowledgelab.org/ 25 https://www.gihub.org/ 26 Praktikas koostaks riik sellisel juhul kaks finantsaruannet. Ühe Euroopa Liidule ning teise Eesti avalikele ja rahvusvahelistele finantsturgudele. 27 https://library.pppknowledgelab.org/documents/5749 28 Siin on üks näide: https://www.eib.org/epec/g2g/i-project-identification/11/index.htm 29 Nõudluse tekitamine viitab nähtusele, kus maanteede läbilaskevõime suurendamine suurendab liikluse mahtu, st maantee läbilaskevõime suurendamine julgustab rohkemaid inimesi autoga sõitma, seega ummikud ei vähene. Ühendkuningriigi komitee Standing Advisory Committee for Trunk Road Assessment (SACTRA) 1994. aastal koostatud aruandes esitati olulisi viiteid nõudluse tekitamise tõenditele. 30 Elroni tegevjuhi Merike Saksi 16. oktoobri 2019. aasta ettekandes ITFile esitatud teave. 31 Stsenaariumite koostamisel eeldatakse, et alternatiivsed kütusetehnoloogiad moodustavad 2050. aastal umbes 60% ostetud uutest sõiduautodest (järgides IEA 2DSi) ja kütusesäästlikkus paraneb kooskõlas Euroopa standarditega. 32 Ehkki piletimüügitulu on kõige olulisem ja stabiilsem tuluallikas, ei suudeta enamikul juhtudel ühistranspordi tegevuskulusid kunagi täielikult katta. Näiteks Londonis kaetakse piletimüügiga 65% tegevuskuludest ja Stockholmis 52%. 33 Süsinikuhindade kõrgetasemeline komisjon soovitas tõsta varihindu 2020. aasta vahemikult 37–74 eurot vahemikku 72–144 euroni 2050. aastal (kõik 2017. aasta püsivhindades). Vt N. Stern ja J. E. Stiglitz (2017). 34 Asjakohane teave on leitav veebisaidil www.vrachtwagenheffing.nl. 35 Vt https://www.dw.com/de/lkw-maut-gilt-jetzt-auf-allen-bundesstra%C3%9Fen/a-44476287. 36 Ülejäänud kolm on Paldiski Lõunasadam ning Paljassaare ja Saaremaa sadam. 37 Need on mitteametlikud seisukohad, mis ei põhine ühelgi ametlikul uuringul. Sidusrühmad lähtuvad oma prognoosides praegusest turuolukorrast. 38 Vt https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_53469. 39 Praegu saab riik kaubalaeva meeskonnaliikmete töötasult tulumaksu aastas 1–2 miljonit eurot. Vt https://www.baltictimes.com/estonian_parlt_committee_backs_exempting_seamen_s_pay_from_income_tax/. 40 Vt https://www.mkm.ee/et/news/estonian-merchant-fleet. 41 Mandri ja saarte vahelise püsiühenduse uuringute raames lasi Maanteeamet 2012. aastal läbi viia ka kasutajate rahulolu uuringu. Selles osalenud vastajatest 94% leidis, et aastatel 2009–2012 on Kuivastu–Virtsu parvlaevaliinil teenus paranenud. Vt https://www.mnt.ee/et/tee/saaremaa-pusiuhenduse-arendamine#tab-0. 42 Eestis on vaid kolm laevandusettevõtjat, kes suudavad pakkuda piisavalt kvaliteetset teenust. Väiksemate saarte puhul on teenuse maht nii väike, et väljaspool Eestit asuvad ettevõtjad pole pakkumise tegemisest huvitatud. Maanteeamet püüab praegu leida parvlaevateenuse osutajaid Rohuküla–Sviby, Kihnu–Munalaiu ja Sõru–Triigi liinile. Kolme liini kogumaht on aastas vähem kui 100 000 km. Ühistranspordiseadus võimaldab sõlmida otselepinguid liinide kohta, mille aastane teenusemaht jääb alla 300 000 km. 43 Eesti meresõiduturvalisuse standardeid peetakse koormavamaks kui teiste EL-i liikmesriikide omi. Eesti Veeteede Ameti tugev turvalisuse kultuur on seletatav 1994. aastal toimunud dramaatilise õnnetusega, kui hukkus parvlaev Estonia. Eesti merenduse sidusrühmad soovitasid kehtestada mujal Põhjamaades kehtivate nõuetega sarnased nõuded, mis põhineksid riskianalüüsil. 44 Selles kontekstis on sisenemiskulud suured, ent parvlaevade järelturg väike. 45 Vt https://www.portoftallinn.com/news?art=1131. 46 Vt https://www.portoftallinn.com/news?art=1133. 47 Sadamatasude kava kehtestab sadam. Riik neid tasusid ei reguleeri, kuna praegu sekkumiseks vajadust ei nähta. Nagu Euroopa Komisjoni jaoks läbiviidud sadamate uuring (COGEA, 2017) näitas, ei ole sadamapõhiste soodustuskavade haldamine eriti koormav ega nõua suurt inimressurssi. Enamik Euroopa keskkonnasäästlike sadamate kavasid põhineb keskkonnaindeksitel (näiteks ESI) või vastavatel sertifikaatidel. Nii on võimalik sadamate töökoormust vähendada, kuna seire ja haldustegevuse peale kulub vähem ressurssi. 134 48 Vt https://www.environmentalshipindex.org/Public/Home. Laevade keskkonnaalase indeksi kasutamisel on ka nõrku külgi, muu hulgas on võimalik, et laevaomanik saab oma aruandluses eeskirju eirata. Põhjalikuma käsitlusega tutvumiseks vt Rahvusvaheline Transpordifoorum (2018). 49 Vt https://www.ts.ee/wp-content/uploads/2019/12/Tasud_puhas_010120_eng.pdf. 50 Praegu on võimalik elektrilisi parvlaevu tuuleparkidest lähtuva otseühenduse kaudu laadida ainult mandril. Ei ole eriti tõenäoline, et tuulepark tagaks laeva 100%-lise töökindluse, näiteks nõrga tuule korral. Töökindluse tagamiseks peab tuulepark olema ühendatud suuremasse võrku ja parvlaeval peab olema võimalik kasutada ka diislikütust. Esimene katseprojektina valminud hübriidparvlaev lasti liinile 17. märtsil 2020. Valitsuse hinnangul läheb peamiste parvlaevaliinide (mandri ja Saaremaa ning mandri ja Hiiuma vahel) elektrifitseerimine maksma umbes 27 miljonit eurot, millest 4 miljonit eurot kulub vajaliku taristu rajamisele (kaablid, laadimisjaamad, sh täiustatum juhtmestik, mille kaudu ühendada sadamaid saartel asuva põhivõrguga). Ligikaudu 80% kodumaise meretranspordi elektrifitseerimiseks tehtavatest investeeringutest katab riik. Takistavad asjaolud, mille tõttu ei saa tuuleenergia taristut praegu riikliku võrguga ühendada, on seotud teatavate lahkhelidega riigi kaitsevõimekuse (Eesti kaitsejõudude radarid) ja tuuleparkide asukohtade vahel. Selle teabe esitas Rahvusvahelisele Transpordifoorumile Majandus- ja Kommunikatsiooniministeerium. 51 Vt https://www.trafa.se/sjofart/sjofartsstodets-effekter-2018-8987/. 52 Praegu käsitletakse püsielanikuna isikut, kelle peamine registrijärgne elukoht on alates 1. jaanuarist asunud soodustusega seotud Eesti saarel. Ent konkreetse kuupäeva asemel tuleks elukohanõue siduda minimaalse saarel elatud aja pikkusega (näiteks vähemalt kaheksa kuud aastas). 53 ACI Europe’i koostatud lennujaamade järjestuses on Tallinna Lennujaama võrreldud teiste Euroopa lennujaamadega, mis teenindavad alla 5 miljoni reisija aastas. Järjestuse aluseks olevate lennuühenduse indeksite arvutamise metoodikat on aruandes üksikasjalikult selgitatud (ACI Europe, 2019). 54 Tallinna Lennujaama andmed saadi ACI korraldatavast lennujaamade teeninduskvaliteeti käsitlevast reisijaküsitlusest (ingl airport service quality, ASQ). 55 Vt https://www.ecaa.ee/en. 56 Vt https://www.aci-europe.org/policy/connectivity.html. 57 Vt https://www.riigikogu.ee/et/foresight/work-foresight-centre/ ja https://www.riigikantselei.ee/et/research-and-development-council. 58 Alaliste komisjonide igapäevase töö hõlbustamine on vastava ministeeriumi poliitikanõunike ülesanne. Konkreetsete ülesannete täitmiseks saab moodustada ka ad-hoc-komisjone. 59 Vt https://eldis.org/organisation/A5678. 2001. aastal Euroopa Liidu jaoks koostatud Eesti innovatsioonipoliitika uuring on leitav siit: https://ec.europa.eu/docsroom/documents/2986/attachments/1/translations/en/renditions/native. 60 Väideti koguni seda, et teatud juhtudel esines kooskõlastamatust isegi sama ministeeriumi sees. 61 Kontekstuaalne tegur, mis võib aidata seda puudujääki selgitada, on teatav vastuolu – ühelt poolt soovitakse kujundada välja transpordisüsteem, mis kajastaks riigitasandi nägemust Eestist kui digitaalse innovatsiooni eestvedajast, kuid teiselt poolt on vaja lahendada varasemast ajast pärit probleemid transporditaristu kasutusvõimaluste pakkumises ja hooldamises. 62 Vt https://ec.europa.eu/digital-single-market/en/pre-commercial-procurement. 63 Vt https://news.err.ee/1086432/amendments-to-traffic-act-favor-electric-scooters-rather-than-restrict-use. 64 Ka Tallinna ja Tartu linnavalitsus on ITS Estonia liikmed; vt https://its-estonia.com/et/its-estonia-et/. 65 Vt https://ec.europa.eu/info/research-and-innovation/research-area/transport/stria_en. 66 Vt https://www.infrastructure.gov.au/transport/land-transport-technology/office-of-future-transport-technology.aspx. 67 Lisateavet programmi kohta leiab veebisaidilt https://www.transport.govt.nz/multi-modal/keystrategiesandplans/strategic-policy- programme/regulation-2025/. 68 Selle teemaga seotud olulisemad ressursid: https://climate-adapt.eea.europa.eu/eu-adaptation-policy/sector-policies/transport. 69 Vt https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32014R0215. 135  Kasutatud kirjandus Jaotis 2.1. 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(2020), „Parking Requirement Impacts on Housing Affordability“, Victoria Transport Institute, https://www.vtpi.org/park-hou.pdf (vaadatud 29. mail 2020). Mayor of London (n.d.), „Paying for Crossrail: Business rate supplement“, https://www.london.gov.uk/what-we-do/business-and-economy/promoting-london/paying-crossrail- business-rate-supplement (vaadatud 29. mail 2020). OECD (2017), „OECD Environmental Performance Reviews: Estonia 2017“, OECD Environmental Performance Reviews, OECD Publishing, Pariis; https://doi.org/10.1787/9789264268241-en. OECD/ITF (2019), Tax Revenue Implications of Decarbonising Road Transport: Scenarios for Slovenia, OECD Publishing, Pariis; https://doi.org/10.1787/87b39a2f-en. Pratelli, A. (2013), Urban Street Design and Planning, Transport Systems and Traffic Engineering, WIT Press, https://www.witpress.com/books/978-1-84564-847-3 (vaadatud 10. veebruaril 2020). Proost, S. (2017), „Reforming private and public urban transport pricing“, Rahvusvahelisel Transpordifoorumil tehtud ettekanne pealkirjaga „Social Impact of Time and Space-Based Road Pricing“, Rahvusvaheline Transpordifoorum; https://www.itf-oecd.org/reforming-urban-transport-pricing (viimati vaadatud 10. veebruaril 2020). 140 SACTRA (1994), Trunk Roads and the Generation of Traffic, Standing Advisory Committee on Trunk Road Assessment, HMSO, London; https://bettertransport.org.uk/sites/default/files/trunk-roads-traffic- report.pdf (viimati vaadatud 10. veebruaril 2020). High-Level Commission on Carbon Prices (2017), Report of the High-Level Commission on Carbon Prices, Maailmapank, Washington, D.C.; https://www.carbonpricingleadership.org/ report-of-the-highlevel-commission-on-carbon-prices/ (viimati vaadatud 12. mail 2020). Tallinn (2019), Statistical Yearbook of Tallinn 2019, Tallinna Linnavalitsus; https://www.tallinn.ee/eng/Statistics-and-yearbooks-2 (viimati vaadatud 10. veebruaril 2020). 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ITF (2018), “Reducing Shipping Greenhouse Gas Emissions: Lessons from Port-Based Incentives”, International Transport Forum Policy Papers, No. 48, OECD Publishing, Paris, https://doi.org/ 10.1787/d3cecae7-en. Riigi Teataja (2019), „Laeva lipuõiguse ja laevaregistrite seaduse ning tulumaksuseaduse muutmise ja sellega seonduvalt teiste seaduste muutmise seadus“, vastu võetud 13.02.2019, https://www.riigiteataja.ee/ akt/104032019001 (külastatud 15.06.2020). Jaotis 2.9. ACI Europe (2019), Airport Industry: Connectivity Report 2019, https://www.aci- europe.org/downloads/resources/aci%20europe%20airport%20industry%20connectivity%20report%202 019.pdf. ITF (2017a), “Airport Site Selection”, International Transport Forum Policy Papers, No. 37, OECD Publishing, Paris, https://doi.org/10.1787/e9453f74-en. ITF (2017b), Quantifying the Socio-economic Benefits of Transport, ITF Roundtable Reports, No. 160, OECD Publishing, Paris, https://doi.org/10.1787/9789282108093-en. 143 ITF (2018a), “Defining, Measuring and Improving Air Connectivity”, International Transport Forum Policy Papers, No. 53, OECD Publishing, Paris, https://doi.org/10.1787/68b8f1cf-en. ITF (2018b), “Government Support Measures for Domestic Air Connectivity”, International Transport Forum Policy Papers, No. 65, OECD Publishing, Paris, https://doi.org/10.1787/8e475cbc-en. ITF (2019), ITF Transport Outlook 2019, OECD Publishing, Paris, https://doi.org/10.1787/transp_outlook- en-2019-en. MEAC (n.d.), “National Tourism Development Plan 2014-2020”, website, Ministry of Economic Affairs and Communications, https://www.mkm.ee/en/objectives-activities/development-plans (külastatud 04.06.2020). 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Ministry of Transport, August 2016. https://www.transport.govt.nz/multi-modal/keystrategiesandplans/strategic- policy-programme/regulation-2025/ OECD (2018), “OECD Regulatory Policy Outlook 2018”, OECD Publishing, Paris. https://www.oecd.org/gov/regulatory-policy/estonia-country-note-regulatory-policy-2018.pdf OECD (2020), “Global Conference on Governance Innovation: Towards Agile Regulatory Frameworks in the Fourth Industrial Revolution”, Summary record from the 13-14 January 2020 conference, OECD, Paris, https://www.oecd.org/gov/regulatory-policy/global-conference-on-governance-innovation- summary-record-2020.pdf. PIARC (2015), “International Climate Change Adaptation Framework for Road Infrastructure”, Report 2015RO3EN, World Road Association, https://www.piarc.org/en/order-library/23517-en- International%20climate%20change%20adaptation%20framework%20for%20road%20infrastructure. 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Transoprt for NSW, Sydney. https://www.transport.nsw.gov.au/sites/default/files/media/documents/2017/tfnsw-climate-risk- assessment-guideline-9tp-sd-081-1.pdf United Kingdom Government (2019), “Future of Mobility: Urban Strategy”. Policy Paper, Department for Transport, March 2019. 145 https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/846 593/future-of-mobility-strategy.pdf 146  3. peatükk Transpordipoliitika eesmärgid ja edu hindamine Vastupidav ja kaasav transpordipoliitika tähendab õiguspäraste poliitiliste eesmärkide seadmist, nende täpset hindamist ja regulaarset aruandlust. Süstemaatiline viis, kuidas eesmärke saab mõõta ja seejärel kasutada selgete aruannete esitamiseks inimeste elus tehtud edusammude või tagasilöökida kohta, on oluline samm valitsuse ja kodanike vahelise usalduse ja vastutuse suurendamise suunas. 3.1 Transpordipoliitika eesmärkide määratlemine Eestile tuleks kasuks põhjalikum transpordipoliitika hindamise ja arengu jälgimise meetod. Eelmises Eesti transpordipoliitika dokumendis valitud lähenemisviis oli ad hoc sisekonsultatsioonide tulemus. Mingisugust aruandluskorda ei kehtestatud. Hulgaliste rahvusvaheliste teadusuuringute ja kogemuste raames on välja töötatud näitajad, mis hõlbustavad analüüsi või võimaldavad edastada teavet avalikkusele poliitika edusammude kohta. Selliste näitajate väljatöötamiseks, mis teenivad mõlemat eesmärki, on olemas erinevad võimalused. See kehtib nii rahvusvaheliste võrdluste (nt TERM raamistik70, SUSTransi indeks71, COST 35672, ITF-i transpordi võrdlusnäitajad, OECD näitajad, mis kajastavad keskkonnaprobleemide integreerimist transpordipoliitikasse73) kui ka riiklike poliitikadokumentide kohta (nt Suurbritannia riiklik infrastruktuuri hindamisaruanne, Kanada transpordiministeeriumi koostatud arengukava, Saksamaa transporditaristu arengukava aastani 2030). Esimene etapp on määratleda asjakohased transpordipoliitika eesmärgid, mida näitajad peaksid kajastama. Poliitikaeesmärgid on seotud rohkem kui ühe algatusega ja hõlmavad sageli rahvusvahelisi lepinguid ja riigisisest otsustusprotsessi. Ühinenud Rahvaste Organisatsiooni säästva arengu tegevuskava aastaks 2030 on üks selline algatus. 2015. aastal vastu võetud tegevuskava määratleb säästva arengu eesmärgid, mis ühendavad mitmeid transpordiga otseselt või kaudselt seotud eesmärke. Põhieesmärk on tagada „juurdepääs turvalistele, taskukohastele, kättesaadavatele ja säästvatele transpordisüsteemidele. Euroopa Komisjon kirjeldas oma üleeuroopalise transpordipoliitika eesmärke 2011. aastal. Valges raamatus, mille pealkiri on „Euroopa ühtse transpordipiirkonna tegevuskava“, on esitatud kümme eesmärki, mis keskenduvad ELi transpordisüsteemile tervikuna. Eesmärgid loovad raamistiku liikmesriikide transpordisüsteemide hindamise jaoks. Valge raamat sisaldab erinevaid konkreetseid, kvantitatiivseid eesmärke (nt vähendada kasvuhoonegaaside heitkogust 2050. aastaks 60% võrra võrreldes 1990. aastaga ja vähendada 2030. aastaks tavakütusel töötavate autode osakaalu linnaliikluses 50% võrra) ja kvalitatiivsemaid eesmärke (nt “Luua täielikult toimiv ja kogu ELi hõlmav mitmeliigiline TEN-T põhivõrk 2030. aastaks“. Riiklikul tasandil puudub ühtne lähenemisviis transpordipoliitika eesmärkidele. Mõned riigid seavad kõiki transpordiliike hõlmavad eesmärgid (nt Norra transpordipoliitika eesmärgid on määratletud kogu transpordisektorile tervikuna74). Teistes riikides arendatakse strateegilised suunised eri sektorite ja kihtide 147 jaoks eraldi välja. Näiteks Suurbritannias hinnatakse riiklikku infrastruktuuri igas sektoris, sh transpordis, ja lisaks sellele on olemas ka eraldi rakendamisstrateegiad transpordisektori eri osade jaoks. 75 Allsektorite strateegiad, sh eraldi logistikastrateegiad, on olemas Hispaanias ja Prantsusmaal. Institutsionaalsest vaatenurgast ei määratle kõik riigid oma transpordistrateegiaid riiklikul või föderaalsel tasandil. Näiteks on Belgias kolme piirkonna (Flandria, Valloonia ja Brüsseli) liikuvusministritest koosnev nõuandekomitee, kes ei anna aru keskvalitsusele. Samamoodi on Austraalias ja Kanadas provintsidel ja osariikidel transpordipoliitika määratlemisel suur autonoomsus. Eesmärgid, mida riigid püüavad saavutada, on väga mitmekesised. Näiteks Prantsusmaa transpordipoliitika prioriteet on minna üle kütuse kasutamiselt taastuvenergiale, võtta kasutusele uued liikumisvõimalused, mis on kättesaadavad tänu tehnoloogia arengule, taastada infrastruktuurivõrk ning keskenduda kasutajatele ja „igapäevaeluga seotud“ transpordile (Ministère de la Transition écologique et solidaire, 2018). Hispaania valitsus esitas 2016. aastal transpordipoliitika tegevuskava järgmiseks neljaks aastaks. Selles määratletakse põhieesmärgid, milleks on territooriumi ümberkorraldamine, sotsiaalne ühtekuuluvus ja võrdsed võimalused (Ministero de Fomento, 2018). Neid eesmärke silmas pidades koostas Hispaania riiklike ehitustööde ministeerium uue transpordi ja infrastruktuuri innovatsioonikava, mis sisaldab nelja sammast:  kasutajakogemus (sh liikuvusteenus ehk MaaS),  nutiplatvormid (sh kauba- ja logistikaplatvormid),  nutikad liinid (sh maantee- ja raudteetranspordi digiteerimine),  energiatõhusus ja säästvus. 3.2 Näitajate raamistiku määratlemine Transpordinäitajate raamistiku väljatöötamisel võetakse arvesse mitmesuguseid põhimõtteid. Nii erialakirjanduses kui ka riiklikes poliitikadokumentides ei ole olemas ühtset standardit. Poliitikadokumentides rühmitatakse näitajad selliste kõrgetasemeliste eesmärke kohaselt, mis esindavad transpordipoliitika laiemaid aspekte. Näiteks Kanada transpordiministeeriumi koostatud 2018–2019. aasta arengukava (Garneau, 2018) sisaldab kolme mõõdet ja asjakohaseid aastaseid näitajaid ja eesmärke:  ohutu ja turvaline transpordisüsteem,  keskkonnahoidlik ja uuenduslik transpordisüsteem,  tõhus transpordisüsteem. Ameerika Ühendriikide transpordiministeerium avaldab iga aasta tulemuslikkuse kavad, mis sisaldavad nelja strateegilise eesmärgi – ohutuse, taristu, uuenduslikkuse ja vastutuse – tulemusnäitajaid. Igal strateegilisel eesmärgil on omakorda erieesmärgid, mille alusel näitajaid rühmitatakse ja neid iga transpordiliigi kohta eraldi esitatakse, sh on paika pandud ka järgmise kahe aasta lähte- ja sihtväärtused (U.S. Department of Transportation, 2018). Akadeemilises kirjanduses viidatakse sageli sellele, et näitajaid jaotatakse säästva arengu kolme samba ehk sotsiaal-, keskkonna- ja majandusvaldkonna järgi (nt Dobranskyte-Niskota et al., 2009; Joumard and Gudmundsson, 2010; Litman, 2019). Dresdeni Tehnikaülikool töötas Saksamaa Keskkonnaagentuurile 2015. aastal välja kasuliku näitajate kogumi jätkusuutliku liikuvuse jaoks. Esiteks tegid nad kindlaks kõige tähtsamad tegevuspunktid jätkusuutliku liikuvuse arengu saavutamiseks. Teiseks määratlesid teadlased näitajad valitud tegevusvaldkondade järgi. Seejärel hinnati valitud näitajaid (Umweltbundesamt, 2015). 148 Säästva arengu kolm sammast on Eesti jaoks sobiv lähtepunkt, mille alusel näitajaid luua, kuna jätkusuutlik liikuvus on oluline nii Eesti kui ka ELi transpordipoliitikas. Lisaks sellele defineerib Euroopa Transpordiministrite Konverents (2004) säästvat transpordisüsteemi kui süsteemi, mis on kättesaadav, ohutu, keskkonnasäästlik ja taskukohane. Et abistada Eestit transpordinäitajate raamistiku väljatöötamisel, määratles ITF eesmärgid, mis vastavad sellele definitsioonile, kuid lisas juurde ka majandusliku mõõtme ja jättis välja ohutuse. Ehkki ohutus on ITF-i riikides sagedaselt kasutatav transpordipoliitika eesmärk, jäeti see selle projekti rakendusalast välja, nagu lepiti kokku Eesti ametiasutustega. Valikute ülevaate ja Eesti ametiasutustega peetud konsultatsioonide põhjal valiti transpordisüsteemi toimimise jälgimiseks välja järgmised eesmärgid: 1. Keskkonnasäästlik transpordisüsteem [KESKKOND] Transport avaldab erinevat keskkonnamõju, sh õhu- ja mürasaastet, mis aitab kaasa kliimamuutusele ja ökosüsteemide muutustele ehitustööde (elupaikade killustumine või hävimine), reostuse ja õnnetuste tõttu. Keskkonnamõju ulatus sõltub transpordiliikidest, kütuseliikidest, energiatõhususest ja transpordinõudluse kasvumäärast. Transpordipoliitikal ja asjaomastel ergutavatel määrustel on suur mõju transpordi keskkonnamõjule. 2. Kaasav transpordisüsteem [SOTSIAALNE] Sotsiaalsed tegurid võivad mõjutada transpordinõudluse suundumusi, näiteks majapidamise tarbimist, vaba aja veetmisele kulutatud aega, valglinnastumist ja asustustihedust, sotsiaalmajanduslikke ja sotsiaal- demograafilisi muutusi jne. Teisest küljest hõlbustab transport juurdepääsu kaupadele, töökohtadele, ühiskondlikele tegevustele, haridusele ja tervishoiuteenustele. Lisaks võib transport tekitada sotsiaalkulusid (õnnetused, reostus ja ummikud) ja transpordipoliitikal (nt maksud, toetused, hinnad) võib olla oluline mõju sotsiaalsele võrdsusele, mis võib rahvastiku ja sissetulekurühmade vahel ebavõrdselt jaotuda. 3. Kvaliteetne, usaldusväärne ja tõhus transpordisüsteem [MAJANDUSLIK] Transpordisüsteemi kvaliteedil, usaldusväärsusel ja tõhususel võib olla suur mõju majanduse konkurentsivõimele. Erinevad majandusjõud kujundavad transpordimustreid. Need hõlmavad majandustegevuse liiki ja ulatust ning sellega seotud tootmismudeleid, maakasutusviise, taristut, kaubavooge ja tehnoloogilisi muutusi. Näiteks kaubavedu on tihedalt seotud tootmismudelitega ja seda mõjutavad nii rahvusvahelise kaubanduse areng, tarbijate nõudlus kui ka tehnoloogiate kasutamine. Asutused võivad oma transpordipoliitika kaudu mõjutada erasektori konkurentsivõimet. Neid eesmärke hoitakse teadlikult abstraktsetena. Eesmärk on pakkuda ainult kontseptuaalset alust, mis keskendub kindlale prioriteetsele valdkonnale, mis mõjutab näitajate valikut. Eesti transpordisektori poliitikaanalüüs sisaldab kasulikke soovitusi täpsemate eesmärkide kohta, mis tuleks vastu võtta asjaomase poliitilise protsessi ja konsultatsiooniprotsessi kohaselt. Et luua Eesti tulevane transpordipoliitika, tuleks neid täiendada ELi eesmärkidega. Need majanduslikud, sotsiaalsed ja keskkonnaeesmärgid moodustavad üheskoos säästva arengu üldeesmärgi. Eesmärgid on selged ja suhteliselt lihtsalt edastatavad. Et anda reaalne ülevaade edu ja arengu kohta, tuleb järgmise sammuna nendele eesmärkidele leida sobivad näitajad. 3.3 Eesti transpordipoliitika näitajate raamistiku väljatöötamine ITF töötas välja Eesti transpordipoliitika näitajate raamistiku. Koguti üle 200 võimaliku näitaja ja koostati kirjanduse ülevaate, mis proovis leida vastust küsimusele, kuidas oleks võimalik transpordisüsteemi, 149 poliitika seisundit ja edusamme kõige paremini hinnata ja edastada. Näitajate valimisel kohaldatud kriteeriumid on esitatud taustaanalüüsis (vt lisa 1). Valitud näitajad määratleti ülaltoodud kolme eesmärgi põhjal. Transpordipoliitika näitajate raamistiku määratlemiseks on vaja leida tasakaal meetmete vahel, mida oleks otstarbekas hinnata, mis oleks laiemale üldsusele tuntavad ja mis esindaks samal ajal ka transpordisektori tulemuslikkust võimalikult täpselt. Transpordinäitajate peamine sihtrühm on avalikkus ja kõrged otsustajad. Näitajate kogumi suurus ja detailsus peaks olema piiratud, et see oleks sihtrühma jaoks asjakohane ja tähenduslik (OECD, 1999). Kui põhirõhk on tõhusal kommunikatsioonil, siis lühidus ja selgus on tähtsamad kui põhjalikkus. Pikad loetelud näitajate kohta tekitavad tõenäoliselt lugejas segadust ja vähendavad osalust. Väikese näitajate kogumi puuduseks on aga see, et lihtsustamise ja kasutaja vajadustele kohandamise tõttu ei pruugi näitajad vastata rangetele teaduslikele standarditele ja mahtuda otsesse põhjuslikkuse ahelasse selle eesmärgiga, millega neid seostatakse. Näitajate arv ja sobivus on piiratud kvaliteetsete ja võrreldavate andmete kättesaadavusega. Eesti puhul kasutati pragmaatilist lähenemisviisi, et tuvastada parimad ja hõlpsasti kättesaadavad andmed, mida oleks ka suhteliselt lihtne mõista ja tõlgendada. Sellest tulenevalt pandi paika järgmised edukate transpordinäitajate peamised tunnusjooned. Need peaksid olema: 1. väljendatud tulemuste kaudu, millega kasutajad on otseselt seotud; 2. arusaadavad ja lihtsalt mõistetavad, vältima keerukaid meetmeid ning olema kergesti ettekujutatavad ja tõlgendatavad; 3. kergesti meelespeetavad, Milleri seadus (Miller, 1956) ütleb, et alamkategoorias või kogumis ei tohiks kasutada rohkem kui seitset (+/- 2) näitajat või mõistet. Kui need tingimused on täidetud, tuleks kehtestada (transpordi)näitajate omadustele täiendavad piirangud, mis põhinevad näitajate kriteeriumide ülevaatel: 4. näitajate saamiseks on andmeid lihtne ja kulutõhus koguda, ideaalis on need hõlpsasti kättesaadavad. 5. Näitajad peaksid võimaldama võrdlust. Kogutud andmed peaksid olema selgelt määratletud ja standardiseeritud, et lihtsustada võrdlust jurisdiktsioonide, aegade ja rühmade vahel. Näiteks peaks näitaja „Inimeste arv, kellel on hea juurdepääs toidukaupadele“ puhul defineerima selles sisalduvad peamised mõisted ’hea juurdepääs’ ja ’toidukaubad’. 6. Näitajad ei tohi olla liiga jäigad. Teisisõnu nad peaksid sisaldama väärtusi, mis muutuvad (nt rahvusvaheliste lepingute arv, lennujaamade arv). Eesti puhul valiti selle eesmärgi künniseks viis aastat. Kolme esimese kriteeriumi puhul on võimalik, et ühel juhul on kasutaja reisija ja teisel juhul on kasutaja äriühing. Kummalgi juhul on prioriteedid erinevad, mistõttu tehakse selles raamistikus nende rühmade vahel vahet. Reisijate prioriteet on kiirus ja hind. Kaupade (äriühingute) jaoks on väiksem sõiduaja varieeruvus – või usaldusväärsus – tähtsam kui kiirus. Mõned näitajad mõjutavad kasutajakogemust ainult kaudselt. Sel põhjusel ei kajasta näitajad selliseid tugifunktsioone nagu võrgu seisukord, institutsiooniline korraldus või infrastruktuuriettevõtete toimimise tõhusus. Ministeerium ja asjaomased ametiasutused peavad siiski neid meetmeid jälgima, kuna need on transpordisüsteemi toimimise jälgimiseks vajalikud. 150 ITF on tuvastanud üle 220 näitaja76, mis on seotud algselt seatud eesmärkidega. Näitajad sisaldavad erinevaid analüüsitasandeid alates trendidest ja muutustest, mis tulenevad poliitikast, kuni majandusliku mõju ja tulemuslikkuse hindamiseni. Mõned näitajad mõõdavad sisendeid (nt iga-aastased investeeringud taristusse), teised mõõdavad väljundeid ja lõpptulemusi (nt ummikute tase, heitkogused, kasutajate rahulolu). Osa nende näitajate hulgas on kvantitatiivsed ja teised pigem kvalitatiivsed, nõudes mitmekülgsete mõõtmistehnikate kasutamist. ITF valis algselt seatud kriteeriumide alusel välja näitajate valimi, võttes arvesse transpordi ja majandusarengu vahelisi empiirilisi ja teoreetilisi seoseid, ning seadis prioriteediks need näitajaid, mille puhul need seosed olid kõige tugevamad (eelkõige ligipääsetavus ja ühenduvus). ITF pidas nõu Eesti ametiasutuste ja Euroopa Komisjoni kolleegidega, kuna võimalikke lahendusi ja näitajaid oli märkimisväärselt palju. Seejärel kohandati näitajate valim Eesti olude jaoks sobivaks. Selle tulemusel jaotati näitajad kahte kihti: kõiki transpordiliike hõlmavad näitajad ja transpordiliigipõhised tulemusnäitajad. Kihi eesmärk on tagada, et kõiki kolme transpordipoliitika eesmärki esindaks vähemalt üks näitaja. Eeldatakse, et iga kasutajarühm on peamiselt huvitatud nende eelistatud transpordiliigist ja selle toimimisest. Iga kasutajarühma kohta peaks olema ka vähemalt üks näitaja, mis esindab kõiki järgmisi mõõtmeid:  ligipääsetavus/ühenduvus  taskukohasus  heitkogus  tõhusus  ohutus.77 Pärast ülaltoodud protsessi järgimist koostas ITF valitud näitajate põhjal kaks üksikasjalikku tabelit, mis on esitatud allpool. Esimeses (Tabel) on esitatud kõige abstraktsem tasand, mis hõlmab reisijate ja kaubaveo koondnäitajaid. Teises (Tabel) on esitatud konkreetsete kasutajarühmadega seotud näitajad. Kolmandas veerus olevad näitajate kategooriad kajastavad mõõdet, millega nad on seotud. Seal kuvatavad valitud näitajad erinevad kasutajarühmade lõikes. See on mitme teguri tulemus. Näiteks ei ole sama tüüpi näitajat võimalik võrdselt kohaldada kõikide kasutajarühmade suhtes, kuna kõikide kasutajarühmade kohta ei pruugi andmed kättesaadavad olla või on Eesti ametiasutused leidnud, et mõni muu näitaja esindab konkreetset mõõdet paremini. Kirjelduse veerus olev hall tekst tähistab ITF-i eelistatud valikut, mida ei ole praegu Eesti puhul võimalik vaadelda andmete puudumise tõttu. Nende näitajate valik ei ole kompromissivaba. Mitmed näitajad võivad ühes raamistikus esindada rohkem kui ühte mõõdet ja mitmed põhjuslikkuse ahelad võivad üksteist mõjutada ja omavahel suhelda. Näiteks konkurentsivõimelist transpordisüsteemi seostatakse sageli aktiivsuse kasvuga, mis võib olemasolevatele säästvuse eesmärkidele vastu töötada. Samuti ei pruugi kulutõhusad toimingud alati kõige keskkonnasäästlikumad olla. Roheline transport ei pruugi tähendada kõige taskukohasemat transporti. Jätkusuutlikkus transpordis hõlmab tihti tõhususe kontseptsiooni: energiatõhusus, maakasutuse tõhusus (nt arukas kasv), ressursitõhusus, toimimise tõhusus, ühendvedude tõhusus jne. Transpordinõudluse kontekstis on riikidel vaja aga oma strateegiad ümber kujundada, et piirata kahjulikku mõju keskkonnale. Eesti transpordisüsteemi edukuse peamine mõõdupuu on võime nende kompromissidega toime tulla ja leida lahendusi, mis tegelevad nii transpordinõudluse kui ka keskkonna ja kliima kaitsmise vajadusega. Allpool esitatud näitajate oluliseks piiranguks on see, et nende väärtuste arengut on võimalik säilitada vaid siis, kui teenusepakkujad (infrastruktuuriettevõtted ja teenuseoperaatorid) säilitavad majandusliku 151 tasuvuse. Näitajate arengut ei tohiks taotleda teenusepakkujate kulude hüvitamise vähendamise78 (ja sellest tulenevalt ka nende elujõulisuse) arvelt. Transpordiliigipõhiste näitajate eesmärk on esitada andmeid eraldi iga transpordiliigi suhtelise tulemuslikkuse kohta. Nende alusel ei saa öelda, et ühe transpordiliigi investeeringuid peaks suurendama ja teise omi mitte. Nende otsuste jaoks on vaja alternatiivisete võimaluste üksikasjalikku hindamist, mida ei ole võimalik saavutada piiratud kõrgetasemeliste näitajate kogumi jälgimisega. Allpool olevad näitajate tabelid peaksid olema piisavad, et transpordipoliitika edusammudest üldsusele teada anda. Eesti ametiasutused peavad ise valima, kuidas nad seda töövahendit kasutavad. Kas see lisatakse näiteks iga-aastasele arenguaruandele või tehakse iga kasutajarühma näitaja jaoks koduleht, mis pakub lugejale täiendavat konteksti? Valitud näitajad ei anna kasutajatele ja suhtlusele orienteerituse tõttu piisavalt teavet, mida Majandus- ja Kommunikatsiooniministeeriumi ametnikel on tarvis täitevorganite (st infrastruktuuriettevõtete ja/või teenuseoperaatorite) töö mõistmiseks ja jälgimiseks. Tulemuslikkuse jälgimiseks üksiksektorite, geograafiliste üksuste või sissetulekurühmade lõikes on vaja pikemat ja üksikasjalikumat näitajate loetelu. Need sõltuvad konkreetsematest eesmärkidest ja väljuvad ITF-i ülesannete kohaldamisalast, kuid selle aruande jaoks läbi vaadatud kirjandus ja näitajate raamistikud on siiski Eesti ametiasutuste jaoks hea lähtepunkt. Eesti ametiasutused peavad arvesse võtma järgmisi küsimusi, mis on seotud näitajate väljatöötamisega:  Kas näitajate väljatöötamine peaks olema seotud avaliku aruteluga?  Kas näitajad on osa muutuse põhitegurite laiemast analüüsist või põhjuslikkuse ahelast?  Kes on näitajate lõpliku valiku ja avaldamise eest vastutavad isikud?  Kas näitajad põhinevad esmasel andmete kogumisel või olemasolevatel andmekogudel?  Kuidas näitajaid aja jooksul säilitatakse ja rahastatakse? Samuti peab Eesti tegelema kogu ELi hõlmavate transpordieesmärkidega. Edusammud nende eesmärkide suunas võivad kajastuda ka allpool olevates näitajates. Tabel 5 lisas 3.1. määrab kindlaks, millist ELi eesmärki iga näitaja käsitleb. Tabel 3. Valitud näitajad, mida kasutatakse Eesti transpordipoliitika edusammude hindamiseks ja esitamiseks Näitaja Transpordipoliitika Näitaja Kirjeldus kategooria eesmärk Üldine transpordipoliitika Kauba- ja reisijateveo üldine CO2 Heitkogused 1 1. CO2 heitkogus* heitkogus Vigastused ja surmajuhtumid 1000 Ohutus 2,3 2. Transpordiga seotud vigastused elaniku kohta (Kõndimine/jalgrattasõit, maantee-, raudtee-, õhu- ja mereliiklus) a. Reisijatevedu (kõik transpordiliigid) Keskmine aeg rahvusvahelise turuni Ligipääsetavus 3 Olulistele turgudele jõudmiseks 1. jõudmiseks kiireimat transpordivõimalust kuluv aeg ** kasutades Töökohtade arv, millele pääseb ligi auto ja Ligipääsetavus 2,3 Ligipääsetavus linnas 2. ühistranspordiga 30 minuti jooksul kõigis funktsionaalsetes linnapiirkondades*** 152  Linnareiside keskmine sõiduaeg Töökohtade arv, millele pääseb ligi auto ja Ligipääsetavus 2,3 ühistranspordiga 60 minuti jooksul kõigis Ligipääsetavus linnade vahel ja 3. maapiirkondades maapiirkondades Linnadevaheliste reiside keskmine sõiduaeg Reisijakilomeetrit (rkm) transpordiliigi Üldine 1,2,3 4. Linnatranspordi osakaal kohta (kõndimine, jalgrattasõit, bussi-, raudtee-, autotransport) Linnadevahelise transpordi Reisijakilomeetrit transpordiliigi kohta Üldine 1,2,3 5. osakaal (auto-, bussi-, rongi-, õhu-, meretransport) Energiatarbimine kilovatt-tundides Tõhusus 1,3 Kütusesäästlikkus / CO2 reisijakilomeetri kohta kWh/rkm (maailma 6. heitkogus keskmine) CO2 heitkogus reisijakilomeetri kohta Reisimisele kulutatud kogusissetuleku Taskukohasus 2,3 protsent kõigi transpordiliikide kohta 7. Taskukohasus kasutajatele alumises kvartiili sissetulekurühmas**** Reisi keskmine maksumus b. Kaubavedu (kõik transpordiliigid) Keskmine aeg rahvusvahelise turuni Ligipääsetavus 3 Olulistele turgudele jõudmiseks 1. jõudmiseks kiireimat transpordivõimalust kuluv aeg kasutades Tonnkilomeetri (tkm) protsent Üldine 1 2. Kaubaveo osakaal transpordiliigi kohta Õigeaegsete saabumiste/aja varieeruvuse Usaldusväärsus 3 3. Logistika usaldusväärsus protsent (piiripunktideni; meresadamasse) Energiatarbimine tonnkilomeetri kohta Tõhusus 1,3 Kütusesäästlikkus / CO2 (maailma keskmine transpordiliikide 4. heitkogus lõikes) CO2 heitkogus tonnkilomeetri kohta EUR/tkm (maailma keskmine Taskukohasus 3 5. Taskukohasus transpordiliikide lõikes) * Vaata järelmärkust 1 selle kohta, miks me ei kasuta CO2 ekvivalente ja valisime lihtsama lähenemisviisi. ** Olulistele turgudele jõudmiseks kuluva aja näitajad tähistavad keskmist aega, mis kulub lähima SKT kontsentratsiooni juurde jõudmiseks (st suure majandusega riiki). See lahendab vahemaa ja riikide geograafilise asukohaga seotud probleemid, võimaldades seega võrdlusuuringuid eri riikide vahel sõltumata sellest, kas nad asuvad suurte majanduste lähedal või mitte. Lisas 3 on esitatud üksikasjalikum teave. *** Kuna töökohtade asukoha kohta puudub andmebaas, võib ligipääsetavuse näitaja asendada reiside keskmise sõiduajaga. Sellega on võimalik hinnata ka sõiduaja kokkuhoidu konkreetse poliitika puhul, mida on omakorda võimalik kasutada kulutõhususe analüüsis. **** Selle projekti raames hinnati mudeli alusel reisi keskmise maksumuse näitajat. Reisimisele kulutatud sissetuleku protsent järgib samasugust suhtelist muutust. Märge: Transpordipoliitika eesmärgi veerus olevad numbrid tähendavad järgmist: 1. Keskkonnasäästlik transpordisüsteem (keskkond); 2. Kaasav transpordisüsteem (sotsiaalne); 3. Kvaliteetne, usaldusväärne ja tõhus transpordisüsteem (majanduslik). Tabel 4. Valitud transpordiliigipõhised näitajad, mida kasutatakse Eesti transpordipoliitika edusammude hindamiseks ja esitamiseks Näitaja Transpordipoliitika Näitaja Kirjeldus kategooria eesmärk a. Erareisijatevedu maanteel (auto ja takso) 153  Näitaja Transpordipoliitika Näitaja Kirjeldus kategooria eesmärk Piirini jõudmiseks kuluv aeg Keskmine aeg rahvusvahelise turuni Ligipääsetavus 3 1. autoga jõudmiseks autoga (sh piirimenetlus) Töökohad linnades, milleni jõuab Ligipääsetavus 2 autoga 30 minuti jooksul 2. Ligipääsetavus linnas Maanteereiside keskmine sõiduaeg linnades. Töökohad maapiirkondades, milleni Ligipääsetavus 2 Ligipääsetavus linnade vahel jõuab autoga 60 minuti jooksul 3. ja maapiirkondades Linnadevaheliste maanteereiside keskmine sõiduaeg. Keskmise kiiruse ja liiklusvoo Usaldusväärsus 3 4. Ummikud kiiruse suhe1 5. Kütusesäästlikkus Energiatarbimine (kWh/tkm) Tõhusus 3 CO2 heitkogus sõidukikilomeetri Heitkogused 1 6. CO2 heitkogus (skm) kohta Registreeritud sõidukite keskmine Heitkogused 1 7. Sõidukipargi keskmine vanus vanus Erasõidukitele tehtavad kulutused, Taskukohasus 2 protsent leibkonna sissetulekust 8. Erasõidukite taskukohasus elanikkonna alumises kvartiilis Autoreiside keskmine reisikulu. b. Kõndimine/jalgrattasõit (motoriseerimata transpordiliigid) 15-minutise jalutuskäigu kaugusel Ligipääsetavu 1,2,3 1. Ligipääsetavus jalgsi asuvate mugavuste arv s 2. Jalgrattaga ja jalgsi Aktiivsete reiside osakaal linnas Üldine 1,2,3 Maanteeliiklusest eraldatud Kvaliteet 1,2,3 3. Jalgrattateede olemasolu jalgrattateede võrgustiku kogupikkus (km) suurtes linnades. 4. Jalgrattaparklate olemasolu Jalgratta parkimiskohtade arv Kvaliteet 1,2,3 Ühistransport (buss, tramm, c. rong) Keskmine aeg piirini jõudmiseks Ligipääsetavu 3 ühistransporti või kiireimat s Piirini jõudmiseks kuluv aeg 1. transpordiliiki kasutades ühistranspordiga maismaapiiride kaudu (sh piirimenetlus) Töökohad, milleni jõuab Ligipääsetavu 2,3 ühistranspordiga 30 minuti jooksul s 2. Ligipääsetavus linnas Ühistranspordi reiside keskmine sõiduaeg. Elanikkonna osakaal, kes elab 400 m Ligipääsetavu 2,3 raadiuses ühistranspordipeatustest s 3. Ühistranspordi katvus (mida teenindatakse rohkem kui kuus korda tunnis) Töökohad, milleni jõuab Ligipääsetavu 2,3 Ligipääsetavus ühistranspordiga 60 minuti jooksul s 4. maapiirkondades Ühistranspordi reiside keskmine sõiduaeg Ühistranspordile tehtavad kulutused, Taskukohasu 2,3 5. Taskukohasus leibkonna sissetuleku protsent s sissetuleku alumises kvartiilis 1Võrreldes teiste Euroopa riikidega ei ole ummikud Eestis praegu väga suur probleem. Selle projekti jaoks välja töötatud mudelid ei võta seda arvesse. 154  Näitaja Transpordipoliitika Näitaja Kirjeldus kategooria eesmärk Ühistranspordi reiside keskmine reisikulu. 6. Kütusesäästlikkus Energiatarbimine (kWh/rkm) Tõhusus 3 7. CO2 heitkogus Heitkogus sõidukikilomeetri kohta Heitkogused 1 Õigeaegne toimimine transpordiliikide Kvaliteet 2,3 lõikes: kuni viieminutilise viivitusega Usaldusväärs 3 8. Keskmine viivitus saabuvate us busside/trammide/trollide/rongide protsent Ühistranspordi tähtsus Spetsiaalsete sõiduradade pikkus ja Ligipääsetavu 3 9. liikluses osakaal s d. Maanteekaubavedu Keskmine aeg rahvusvahelise turuni Ligipääsetav 3 Piirini jõudmiseks kuluv aeg 1. jõudmiseks maismaapiiride kaudu us autoga Keskmise koorma suuruse ja sõiduki Tõhusus 1,3 2. Veoautode koormustegurid kogu veomahu suhe2 Sõiduki keskmine kiirus, liiklusvoo Usaldusväärs 3 3. Keskmine viivitus kiirus us Registreeritud sõidukite keskmine Heitkogused 1 4. Sõidukipargi keskmine vanus vanus 5. Kütusesäästlikkus Energiatarbimine (kWh/tkm) Tõhusus 3 6. CO2 heitkogus CO2 heitkogus tonnkilomeetri kohta Heitkogused 1 Kaubasaatja kulud EUR/tkm Taskukohasu 3 7. Taskukohasus s Rahvusvahelise piiri ületamiseks Tõhusus 3 8. Piiriületuse tõhusus vajalik aeg (piirimenetlus) e. Raudteekaubavedu Keskmine aeg rahvusvahelise turuni Ligipääsetavu 3 Piirini jõudmiseks kuluv aeg jõudmiseks maismaapiiride kaudu 1. s rongiga (v.a piirimenetlus) Raudteekaubaveo keskmine kiirus Ligipääsetavu 3 2. Raudteetranspordi kiirus Keskmine aeg tonnkilomeetri kohta s, tõhusus Kohaletoimetamise viivitused/ õigeaegselt saabuvate rongide Usaldusväärs 3 3. õigeaegne toimimine protsent / tühistatud rongide protsent us 4. Kütusesäästlikkus Energiatarbimine (kWh/tkm) Tõhusus 3 Heitkogus tonnkilomeetri kohta Heitkogused 1 5. CO2 heitkogus Märkus: võttes arvesse tühje ronge Rongide keskmine koorem tonnides Tõhusus 3 6. Rongide keskmine koorem normeeritud rongi kohta Kaubasaatja kulud väljendatud Taskukohasu 3 7. Taskukohasus raudteetuluna tonnkilomeetri kohta s Rahvusvahelise piiri ületamiseks Tõhusus 3 Piiriületuse tõhusus 8. vajalik aeg (koostalitlusvõime) (piirimenetlus) Lennuk (reisijate- ja f. kaubavedu) Haardeala (inimeste arv, kes elavad Ligipääsetavu 3 1. Ligipääs lennujaamale Tallinna lennujaamast ühe, kahe või s 2 Seda näitajat võib olla keeruline mõõta ja hinnata. 155  Näitaja Transpordipoliitika Näitaja Kirjeldus kategooria eesmärk kolme tunni kaugusel – ühistranspordi ja autoga) Päevade arv aastas, mil Tallinna Usaldusväärs 3 Lennujaama või õhuruumi 3. lennujaamas esinevad us ummikud ilmastikuoludest sõltumatud häired Riigisiseste lendude tekitatud CO2 Heitkogused 3 4. CO2 heitkogus heitkogused reisija kohta g. Sisevee-meretransport üldine 1. CO2 heitkogus CO2 heitkogus tonnkilomeetri või Heitkogused 1 sõidukikilomeetri kohta 2. Kohalik õhusaaste Heitkogus tonnkilomeetri või Heitkogused 1 sadamalinnades sõidukikilomeetri kohta Energiatarbimine (kWh/tkm või Tõhusus 3 3. Kütusesäästlikkus kWh/skm) h. Sisevee-meretransport reisija 1. Sadamate ühendused Otseühenduste arv teiste sadamatega Ühenduvus 2,3 Keskmine aeg sadama(te)ni Ligipääsetavus 3 2. Ligipääs sadamale jõudmiseks (sh piirimenetlus) ühistranspordi või autoga Sadama läbilaskevõime 3 3. Tegelik vs. hinnanguline potentsiaal Tõhusus rakendamine Keskmine sõidukite väljumissagedus Ligipääsetavus 2 4. Saarte kaugus mandrist + sõiduaeg, et jõuda mandrile Ühistranspordile tehtavad kulutused, Taskukohasus 2,3 5. Taskukohasus leibkonna sissetuleku protsent sissetuleku alumises kvartiilis Viivitused riigisisestel Parvlaevade keskmine viivitus Usaldusväärsus 3 6. parvlaevaliinidel Sisevee-meretransport i. kaubavedu Keskmine aeg meresadamasse Ligipääsetavus 3 Ligipääs sadamale 1. jõudmiseks mööda maanteed või kaubaveoks raudteed (v.a väljumisprotseduurid) Protsentuaalne aeg, mil teatav Ligipääsetavus 3 2. Ligipääs transpordile meretee või jõgi on jäävaba 3. Sadamate ühendused (I) Otseühenduste arv teiste sadamatega Ühenduvus 3 4. Sadamate ühendused (II) Sadamate teenindussagedus Ühenduvus 3 Sadama läbilaskevõime Tõhusus 3 5. Tegelik vs. hinnanguline potentsiaal rakendamine Laevade sadamas seismisele Tõhusus 3 6. Laevade käitlusaeg keskmiselt kuluv aeg Rongide jaamas seismisele Tõhusus 3 7. Rongide käitlusaeg keskmiselt kuluv aeg Rahvusvahelise piiri ületamiseks Tõhusus 3 8. Piiriületuse tõhusus vajalik aeg (piirimenetlus) * Võrreldes teiste Euroopa riikidega ei ole ummikud Eestis praegu väga suur probleem. Selle projekti jaoks välja töötatud mudelid ei võta seda arvesse. ** Seda näitajat võib olla keeruline mõõta ja hinnata. Märge: Transpordipoliitika eesmärgi veerus olevad numbrid tähendavad järgmist: 1. Keskkonnasäästlik transpordisüsteem (keskkond); 2. Kaasav transpordisüsteem (sotsiaalne); 3. Kvaliteetne, usaldusväärne ja tõhus transpordisüsteem (majanduslik). 156  Märkused 70 Euroopa Komisjon algatas 1998. aastal koostöös Euroopa Keskkonnaametiga (EEA) näitajatel põhineva transpordi ja keskkonna aruandlusmehhanismi (TERM) arendamist. Selle eesmärk oli hinnata integratsioonimeetmete tõhusust ELi tasandil ja toetada jätkusuutlikuma transpordisüsteemi väljatöötamist. Näitajad on struktureeritud järgmiste teemade kohaselt: transpordist tulenevad keskkonnamõjud; maakasutus ja juurdepääs; transpordinõudlus ja intensiivsus; veoteenused; hinnasignaalid; transpordi tõhusus. 71 SusTransi indeks on viiemõõtmeline säästva transpordi indeks, mis hõlmab keskkonnamõõdet, majandust, sotsiaalset mõõdet, tehnoloogiat ja institutsioone. Indeks sisaldab 55 näitajat, millest mõõdeti vaid 32, kuna ilmnes probleeme andmete kättesaadavusega. See arvutatakse kaalude jaotuse põhjal, kasutades võrdse kaalujaotuse lähenemisviisi. Iga jätkusuutlikkuse mõõdet tähistatakse vastava koondindeksiga (nt transpordi majandusliku jätkusuutlikkuse indeks, transpordi sotsiaalse jätkusuutlikkuse indeks jne), mis omakorda koosneb 3–5 võrdse kaaluga ja mitut konkreetset näitajat sisaldavast alamdimensioonist. 72 COST 356 (2010), “Mõõdetava keskkonnasäästliku transpordi suunas” („Towards A Measurable Environmentally Sustainable Transport“) (http://cost356.inrets.fr) töötas välja näitajad keskkonnasäästliku transpordi jaoks. Lõpparuanne: http://cost356.inrets.fr/pub/reference/reports/Indicators_EST_May_2010.pdf. 73 Lisaks muudele OECD sektoripõhistele näitajate kogumitele on OECD (1999) välja töötanud transpordi- ja keskkonnanäitajate kogumi, vaata http://www.oecd.org/officialdocuments/publicdisplaydocumentpdf/?doclanguage=en&cote=ENV/EPOC/SE(98)1/FINAL. 74 Vaata https://www.regjeringen.no/contentassets/7c52fd2938ca42209e4286fe86bb28bd/engb/pdfs/stm201620170033000e- ngpdfs.pdf 75 Sektorispetsiifiliste strateegiate kohta vaata näiteks Suurbritannia maanteeinvesteeringute strateegiat: https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/752066/draft-road- investment-strategy-2-governments-objectives.pdf 76 Kui kirjanduse ja muude allikate läbivaatamisele pühendataks veelgi rohkem aega, siis oleks näitajate hulk kahtlemata suurem. Kogemused on aga näidanud, et kõige tähtsamad ja sobivamad näitajad olid arvesse võetud. 77 Kuigi ohutus ei kuulu selle töö ulatusse – mis koosneb poliitikaanalüüsist ja modelleerimisest/stsenaariumide väljatöötamisest – on see lisatud siia olulise kategooriana, mida peab arvesse võtma igas transpordipoliitika näitajate raamistikus. 78 Tulud on piisavad, et katta kõik tootja kulud ja väike (tavapärane) kasum. See võimaldab töötajatele maksta ning säilitada ja asendada oma vara, kui nende eluiga lõpeb. Avalikus sektoris ei tohiks seda võtta iseenesestmõistetavana. Näiteks võivad riigid infrastruktuurilt ajutiselt „laenata“, lükates edasi hoolduse või uuendamise. Selle summa saab siis ümber jaotada, et parandada mõnda teist teenust. Seejärel kantakse võlg tulevastsesse aastatesse. 157  Kasutatud kirjandus Dobranskyte-Niskota, A., A. Perujo, J. Jesinghaus and P. Jensen (2009), “Indicators to Assess Sustainability of Transport Activities: Part 2”, JRC Scientific and Technical Reports. European Commission (2011). WHITE PAPER roadmap to a single European transport area towards a competitive and resource efficient transport system. COM (2011), 144. Joumard, R. and H. Gudmundsson (2010), “Indicators of environmental sustainability in transport: An interdisciplinary approach to methods”, Les collections d l’INRETS, Recherches, A. Lauby, https://hal.archives-ouvertes.fr/file/index/docid/492823/filename/Indicators_EST_May_2010.pdf. Litman, T. (2019), “Well Measured: Developing Indicators for Sustainable and Livable Transport Planning”, Victoria Transport Policy Institute, 18 March 2019. Miller, G. A. (1956), “The magical number seven, plus or minus two: Some limits on our capacity for processing information”, Psychological review, Vol. 63(2), p. 81. Ministère de la Transition écologique et solidaire (2018), “De la diversité des politiques de transport en Europe et de leurs effets”, Bulletin de l’Observatoire des Politiques et Stratégies de Transport en Europe, No. 47, April 2018. Ministero de Fomento (2018), “Innovation Plan for Transport and Infrastructures 2018-2020”,. OECD (1999), Indicators for the Integration of Environmental Concerns into Transport Policies, Working Group on the State of the Environment, http://www.oecd.org/officialdocuments/ publicdisplaydocumentpdf/?doclanguage=en&cote=ENV/EPOC/SE(98)1/FINAL. Garneau, M. (2019), Transport Canada 2018-19 Departmental Plan. Her Majesty the Queen in Right of Canada, represented by the Minister of Transport. Umweltbundesamt (2015), “Entwicklung von Indikatoren im Bereich Mobilität für die Nationale Nachhaltigkeitsstrategie“, Study carried out by the Technical University of Dresden, Faculty of Transportation Sciences. U.S. Department of Transportation (2018), “2018-19 Annual Performance Plan – Annual Performance Report”, https://www.transportation.gov/mission/budget/dot-fy-2018-2019-annual-performance-plan- and-fy-2017-annual-performance-report 158 Lisa 3.1. Näitajate raamistiku koostoime kogu ELi hõlmavate transpordieesmärkidega Tabel 5. Näitajate raamistiku koostoime kogu ELi hõlmavate transpordieesmärkidega ELi üldeesmärk ELi peamised transpordiga seotud eesmärgid Milliseid näitajaid parendatakse ELi kliimapoliitika 2050. aastaks peavad transpordist tulenevad Kütusesäästlikkus, sõidukipargi vanuse 2050 kasvuhoonegaaside heitkogused olema vähemalt vähendamine, raudtee, ühistranspordi ja 60% madalamad kui 1990. aastal ja olema motoriseerimata transpordiliikide suurenenud kindlalt teel nullini. osakaal, heitkoguste CO2 ekvivalent skm-i kohta reisijate ja tkm-i kohta kaubaveo puhul ELi Täiustatud biokütuste ja biogaasi osakaal peab Heitkoguste CO2 ekvivalent skm-i kohta reisijate energiapoliitika 2025. aastal olema vähemalt 1% ja 2030. aastal puhul ja tkm-i kohta kaubaveo puhul, tkm vähemalt 3,5%. kaubaveo kohta, heitkoguste CO2 ekvivalent skm- i kohta reisijate puhul ja tkm-i kohta kaubaveo puhul, ülemaailmselt ja kasutajarühmade/transpordiliikide lõikes ELi Uute ja säästvate kütuste ja käivitussüsteemide transpordipoliitika väljatöötamine ja kasutuselevõtmine valge raamat (2011) Vähendada nn tavakütusel töötavate autode Linnatranspordi osakaal, heitkoguste CO2 osakaalu poole võrra 2030. aastaks; järk-järgult ekvivalent skm-i kohta reisijate puhul, kõrvaldada need linnaliiklusest 2050. aastaks; kütusesäästlikkus maanteel toimuval reisija- ja suuremates linnakeskustes peaks 2030. aastaks kaubaveol olemas olema põhimõtteliselt CO2-heiteta logistikasüsteem. Vähest CO2-heidet tekitavate keskkonnasäästlike Lennunduses puudub (rahvusvaheline lennundus kütuste osakaal peab lennunduses suurenema ei kuulu Eesti transpordipoliitika vastutusalasse); 40%-ni 2050. aastaks; samuti vähendada ELis heitkoguste CO2 ekvivalent tkm-i kohta, 2050. aastaks merendussektoris punkrikütustega kütusesäästlikkus merendussektoris kaasnevat CO2-heidet 40% (võimaluse korral 50%). ELi Mitmeliigiliste logistikasüsteemide toimimise transpordipoliitika optimeerimine, sealhulgas olemuselt valge raamat (2011) ressursitõhusamate transpordiliikide laialdasem kasutamine 30 % maantee-kaubavedudest, mis on pikemad Raudtee- ja meretranspordi osakaalu kui 300 km, tuleks asendada muude suurenemise näitaja kaubaveos, heitkoguste CO2 transpordiliikidega, nt raudtee- või ekvivalendi ja kütusesäästlikkuse näitajad tkm-i veetranspordiga 2030. aastaks ja üle 50 % kohta, ülemaailmselt ja transpordiliikide kaupa. kõnealustest vedudest tuleks asendada muude transpordiliikidega 2050. aastaks; sellist üleminekut soodustaksid tõhusad ja keskkonnasäästlikud kaubaveokoridorid. Selle eesmärgi saavutamiseks on vaja ka infrastruktuuri asjakohaselt arendada. 159  Ehitada 2050. aastaks lõplikult välja Linnadevahelise transpordi osakaal üleeuroopaline kiirraudteevõrk. Kolmekordistada olemasoleva kiirraudteevõrgu pikkust 2030. aastaks ja säilitada tihe raudteevõrk kõikides liikmesriikides. 2050. aastaks peaks enamik keskpika vahemaa reisijatevedusid toimuma raudteed pidi. Kohalejõudmise aeg põhiturgudele (kiireim transpordiliik), keskmine kohalejõudmise aeg Tagada täielikult toimiv ja kogu ELi hõlmav piirini reisijate- ja kaubaveos mööda maanteed, mitmeliigiline TEN-T põhivõrk 2030. aastaks ning kohalejõudmise aeg piirini reisijate- ja kaubaveos kvaliteetne ja suure läbilaskevõimega võrk 2050. mööda raudteed; kohalejõudmise aeg piirini aastaks koos vastavate teabeteenustega. ühistranspordiga, ligipääsuga lennujaamale ja meresadamatele Ühendada 2050. aastaks kõik põhivõrku kuuluvad Juurdepääs lennujaamale ja meresadamale lennuväljad raudteevõrguga, soovitavalt kiirraudteevõrguga; tagada kõikide põhivõrku kuuluvate meresadamate piisav ühendus raudtee-kaubaveosüsteemiga ja võimaluse korral ka siseveeteedesüsteemiga. ELi Tõhustada transporti ja infrastruktuurikasutust transpordipoliitika teabesüsteemide ja turupõhiste algatustega valge raamat (2011) Rakendada Euroopas 2020. aastaks Need meetmed suurendavad üksikute ajakohastatud lennuliikluse korraldamise transpordiliikide mahtu / potentsiaalset infrastruktuur (SESAR) ja arendada lõplikult välja läbilaskevõimet (nt raudteeliikluses võimaldab Euroopa ühine lennunduspiirkond. Rakendada rongide vaheline vähendatud ohutuskaugus samalaadsed maismaa- ja veetranspordi suurendada rongiliikluse sagedust või pikemaid korraldamise süsteemid (ERTMS, ITS, SSN ja LRIT, ronge eeldusel, et puuduvad taristust tulenevad RIS). Rakendada Euroopa globaalne piirangud). Võimalikud mõjud ulatuvad seetõttu satelliitnavigatsioonisüsteem (Galileo). kütusesäästlikkusest / madalamatest heitkogustest (nt pikemad rongid), madalamatest kuludest / suuremast taskukohasusest piiriüleste ja muude menetluste vähendamiseni. Luua 2020. aastaks Euroopa mitmeliigilise Sellised süsteemid võimaldavad kasutajatel transpordi teabe-, juhtimis- ja maksesüsteemi optimeerida transpordiliigi valikut sõltuvalt raamistik. kasutaja prioriteetidest (nt kiirus, maksumus jms). Praktikas tooks see kaasa väiksemad kasutajakulud, heitkoguste mõju vähenemise ja muu. ITF-i mudel juba eeldab optimaalset määramist, nii et selle eesmärgi saavutamiseks tehtavaid edasiminekuid ei kajastataks. Viia maanteeliikluses hukkunute arv 2050. Transpordiga seotud vigastused ja surmad 1000 aastaks enam-vähem nullini. Vastavalt sellele elaniku kohta. eesmärgile püüab EL vähendada liiklusohvrite arvu 2020. aastaks poole võrra. Tagada ELi juhtpositsioon kõikide transpordiliikide ohutuse ja turvalisuse osas. 160 Liigutakse põhimõtete „kasutaja maksab“ ja Nende kahe põhimõtte rakendamine tooks kaasa „saastaja maksab“ täieliku rakendamise ning ümbersuunamised ja selle kaudu taskukohasuse erasektori osaluse poole, et kõrvaldada vähenemise, vähendades transpordivooge ja moonutused, sealhulgas kahjulikud toetused, heitkoguseid. See kajastuks vastavates näitajates. teenida tulu ja tagada tulevaste transpordiinvesteeringute rahastamine. 161  4. peatükk Reformid ja transpordipoliitika stsenaariumid: Kui edumeelne tahab Eesti olla? Järgmises peatükis käsitletakse kolmandat elementi raportist „Reisijate liikuvuse ja kaubaveo tulevik Eestis“ [Future of Passenger Mobility and Goods Transport in Estonia]: Eesti transpordi ja liikuvuse arengukava sisenduuring – poliitiliste stsenaariumite modelleerimine Eesti jaoks väljatöötatud erivahendite abil. Enne poliitikareformide või infrastruktuuriplaanide juurutamise otsustamist tuleb viia läbi analüüs. Teise peatüki jaotises 2.2. Taristu kavandamine ja projekti valimine kirjeldatakse üksikasjalikult modelleerimise ja hindamise soovitatavaid tüüpe, millest see protsess koosneb. Transpordimudelid annavad olulise ülevaate olemasolevatest transpordisüsteemidest, toetades infrastruktuuri kavandamist ja operatiivplaneerimist. Need on strateegilise planeerimise ja otsuste tegemise oluline vahend, sest neist tulenevate väljunditega saab kindlaks teha kavandatavate projektide või poliitikate mõju. Hetkel puuduvad Eestil terviklikud strateegilised transpordimudelid ja selle projekti ülioluliseks osaks oli riigile selliste mudelite jaoks vajaliku aluse väljatöötamine. Selles peatükis analüüsitakse alternatiivsete poliitikastsenaariumide mõju Eestile, kasutades selleks konkreetseks juhtumianalüüsiks välja töötatud strateegilise modelleerimise vahendeid. Stsenaariumi tulemuste hindamiseks kasutati põhilisi näitajad, millega jälgitakse transpordipoliitika edusamme, nagu transpordiliigi osakaal, CO2 heitkogused, kättesaadavus ja taskukohasusi. Kolmekümne aastase perioodi (2020 kuni 2050) jooksul analüüsitakse kolme stsenaariumi:  Tavapärane tegevus (BAU)  Kõrged ambitsioonid (HA)  Madalad ambitsioonid (LA) HA- ja LA-stsenaariumid on poliitika võimalikud kombinatsioonid, mis toetuvad 2. peatükis esitatud kümne poliitikavaldkonna ülevaate ja Eesti sidusrühmade tagasiside põhjal soovitatud peamistele reformidele. Need pakuvad kokkuvõtlikku viisi mõjude analüüsimiseks ja esitlemiseks, selle asemel et tutvustada igat meedet eraldi. Modelleerimisvahendid võimaldavad meetmete individuaalset katsetamist. Lühiduse huvides esitatakse aruandes siiski ainult valitud üksikud mõjud. Stsenaariumide eesmärk on tuua esile võimalikke lahendusi (või „mis siis, kui”-stsenaariume) ja nende mõju, mitte määratleda poliitikakujundajate jaoks õige tee, mida strateegiaks valida. Eesti riikliku transpordistrateegia väljatöötamisel tuleks lähtuda stsenaariumi tulemustest koos kõigi poliitikat puudutavate soovitustega. Oluline on märkida, et need stsenaariumid ei sisalda kõiki reforme või soovitusi. Strateegiliste stsenaariumimudelitega, nagu seda on Eesti jaoks välja töötatud mudelid, modelleeritakse koondreforme, samas kui üksikasjalikum analüüs nõuaks andmeid või spetsiifilisemaid mudeleid, mis pole veel kättesaadavad. Samuti on mitmeid soovitusi, näiteks institutsioonilised reformid ja kvalitatiivsed mõjud, nagu mugavus ja tervis, mida ei saa strateegiliste transpordimudelite abil sisukalt hinnata. Eesti strateegilise modelleerimise komplekti jaoks välja töötatud vahendid simuleerivad lihtsustatud viisil reaalse elu liikumis- ja reisimisharjumusi. Need võivad aidata genereerida näitajaid ja võrrelda mitme valiku kogumõju, aidates kitsendada kõige mõjuvamaid poliitikavalikuid. Lõplikud otsused nõuavad täiendavat modelleerimist, laiemate piirkondlike eesmärkide ja poliitiliste piirangute arvestamist ja põhjalikku investeeringute hindamist. 162 Selle poliitikaülevaate kvantitatiivseid töövahendeid ja analüüse saab kasutada lähtekohana üksikasjalikumaks tööks. Need on koostatud selle uuringu ajal Rahvusvahelise Transpordifoorumi (ITF) käsutuses olnud andmete põhjal ja neid saab täiustada, et need andmete kogumise ja küsitluste läbiviimise laienedes kajastaks paremini reisikäitumist ja kaubaveo mustreid Eestis. Välja töötatud modelleerimisvahendid on paindlikud ning võimaldavad kohandada tulevasi poliitikameetmeid, mida Eesti võib soovida katsetada. Lisas 4.1 on esitatud metoodika lühikokkuvõte ja täiendavad üksikasjad on toodud sellele lisatud metoodika mudeli aruandes. 4.1 Poliitikastsenaariumid esindavad mitmesuguseid transpordimeetmetest tulenevaid võimalikke mõjusid Tavapärase tegevuse (BAU) stsenaarium eeldab, et praegust transpordipoliitikat ei muudeta. Selles arvestatakse ainult rahvaarvu ja SKT muutusi ning vastavaid muutusi sõidumahtudes (BAU-stsenaariumis eeldatakse, et raudteeveo maht on püsiv). Kõrge ambitsiooniga (HA) ja madala ambitsiooniga (LA) stsenaariumid võtavad arvesse soovitatavaid poliitikameetmeid, kuid erinevad üksteisest juurutamise ulatuse ja rakendamise ajakava poolest. HA-stsenaarium kujutab seda, mida oleks võimalik saavutada tugeva poliitilise ühtsuse ja transpordireformide prioriseerimisega keskendudes jätkusuutlikule majanduskasvule. LA-stsenaarium kujutab meetmetete mõju, kui meetmeid ei rakendata vastavalt nende täielikule potentsiaalile või kui nende rakendamisega viivitatakse. Need stsenaariumide määratlused põhinevad 2020. aasta veebruaris toimunud seminaridel, mille käigus ITF sai Eesti asjaomastelt sidusrühmadelt tagasisidet mõnede soovitatud poliitikameetmete teostatavuse kohta. Oluline on märkida, et stsenaariumid ei ole eesmärgipõhised, et täita täielikult Eesti majanduslikke, sotsiaalseid või keskkonnaalaseid eesmärke. Mõnikord võib uue meetme lisamine olla efektiivsem kui modelleeritud meetmete rakendamise taseme tõstmine ebareaalse eesmärgi saavutamiseks. Selle uuringu mudelid ja analüüs keskenduvad realistlikele meetmetele ja poliitikastsenaariumidele, nagu arutati sidusrühmadega. Kõrgel tasemel ühendatud transpordimudelitega ei saa modelleerida kõiki võimalikke poliitikameetmeid, mis võiksid nende eesmärkide saavutamisele kaasa aidata. Iga stsenaariumi poliitikameetmete modelleerimisel kasutakse asjakohast sektoripõhist mudelit. Täpse algtaseme tagamiseks võrreldakse HA või LA tulemusi alati sama aasta BAU tulemustega. Kavandatud meetmete täiendavad põhjendused ja näited on leitavad 2. peatükis. Järgmistes jaotistes kirjeldatakse meetmete modelleerimist kõigis järgmistes transpordisektorites:  reisijatevedu linnapiirkonnas (hõlmab Harjumaad ja osa Raplast)  riiklik reisijatevedu  rahvusvaheline reisijatevedu  riiklik ja rahvusvaheline kaubavedu Linnapiirkonna reisijateveo poliitikameetmete modelleerimine Tabel6 kirjeldab stsenaariumides sisalduvaid linnapiirkonna reisijateveoga seotud meetmeid ja nende sõitmisomadusi, mida nad mudeli raames manipuleerivad. Need meetmed kujutavad endast Eestis läbiviidud poliitikareformide tulemust, mis sobituvad nende kontekstiga parimal võimalikul viisil, olemata normatiivsed tegevuseesmärgid reformide kehtestamiseks. Näiteks võib tänavaruumi ümberjaotamine 163 aktiivse liikumise prioriseerimiseks hõlmata paljusid muudatusi, sealhulgas jalgrattasõidu ja kõndimise infrastruktuuri laiendamist, teatud tänavate sulgemist autoliiklusele ja liiklust rahustavaid meetmeid. Sõltumata sellest, kuidas tänavaruumi ümber jaotatakse, aitaksid need tegevused kaasa tabelis (esimene veerg) kirjeldatud sõiduaja mõjudele. Need muutused sõiduajas modelleeritakse, et simuleerida muutusi reisikäitumises ja transpordiliigi valikus. Poliitikameetmete põhjendused leiate 2. peatüki jaotisest 2.5. Kasutajate käitumise ja ühistranspordi poliitika suunamine. Tabel6. Linnapõhise reisijaveomeetmete modelleerimine kõrge ja madala ambitsiooniga stsenaariumide korral Meetme kirjeldus Kõrged ambitsioonid Madalad (Kuidas meetmeid mudelis modelleeritakse) (rakendamise aasta) ambitsioonid (rakendamise aasta) Käitumise muutmiseks suunatud meetmed 164 Meetme kirjeldus Kõrged ambitsioonid Madalad (Kuidas meetmeid mudelis modelleeritakse) (rakendamise aasta) ambitsioonid (rakendamise aasta) Kasutusmaks – Ummikumaks Tallinnas 2030 - Tallinnas algavatele või lõppevatele eraautosõitudele rakendatakse keskmiselt 1,80 euro suurust tasu. Tasu kujutab endast keskmist tasu reisi eest, mis sisaldab osa Tallinna piires (st 3,60 eurot, mida rakendatakse pooltele autoreisidest). Tasu suurus peegeldab teisi Euroopa linnu, kus on kehtestatud sarnane kord, olles kohandatud Eesti sissetulekutega ja hõlmates Eesti ametivõimudelt 22. aprillil 2020 toimunud veebiseminaril saadud tagasisidet. Kasutusmaks – Teemaks 2025 2025, kuid kütusekulud Kõigi eraautosõitude maksumusele lisandub teemaks suuruses 0,09 eurot vähenevad sama palju kilomeetri kohta. (autosõidu kilomeetri Distantsipõhine tasu kajastab paremini hoolduskulusid, mis on seotud netokulu ei muutu) infrastruktuuriga, mida sageli peetakse „tasuvabaks“. Ainuüksi kütuseaktsiisist loobumine on hädavajalik elujõulise maksubaasi säilitamiseks, kuna kütusemaksud vähendavad maanteetranspordist tulenevat CO2 heidet. Parkimistasud 2020 2025 Madalaimat kehtivat parkimismäära kohaldatakse kõigile tsoonidele, kus parkimiskulud ei olnud kõrgemad (0,60 eurot tunnis, eeldades keskmiselt ühe tunni pikkust parkimist). Eeldatakse, et antud parkimistasu kehtib kõikidele autosõitudele. Keskmine parkimisaeg põhineb leibkonna reisiuuringul, mille põhjal pandi keskmiseks parkimisajaks umbes üks tund. Tallinna kesklinna näidistsoonis säilitati kõrgemad parkimismäärad. Tänavaruumi ümberjaotamine (Tallinnas) 2025 2030 Suurendada autoga ja ühiste transpordiliikidega sõitmiseks kuluvat aega 10% võrra Tallinnast algavate või lõppevate reiside jaoks. Vähendada Tallinnas kõndimiseks ja rattasõitudeks kuluvat aega ning ühistranspordile juurdepääsuaega 10% võrra. Need meetmed prioriseerivad teede (re)konstrueerimise ajal autosõidu asemel aktiivset liikumist. Autode sõiduaeg on lühenenud, samas kui aktiivsed liikumisviisid näivad vähenenud võrgukatkestuste, autoliikluse vähenemise ja muude meetmete tõttu atraktiivsemad. Eeldatakse, et ühistranspordile pääseb ligi jalgsi ja see on seetõttu kaasatud parendustesse. Tänavavälise parkimise eeskirjad (Tallinnas) 2025 2030 Tallinnas algavate või lõppevate sõitude jaoks pikendage autoga sõitmise aega viie minuti võrra. Praeguse rohke tänavavälise parkimise reguleerimine peaks piirama olemasolevaid võimalusi ja muutma parkimiskoha otsimise keerulisemaks. Seda kohaldatakse auto sõiduaja absoluutse pikenemisena, kuna parkimiseks kuluv aeg ei sõltu sõidetava vahemaa pikkusest. 165  Meetme kirjeldus Kõrged ambitsioonid Madalad (Kuidas meetmeid mudelis modelleeritakse) (rakendamise aasta) ambitsioonid (rakendamise aasta) Ühistranspordi parendamine 2025 2035 Vähendage sõidukis viibimise aega viie minuti võrra* ja lühendage kõigi sõitude ooteaega 5%. Ühistranspordi parendused hõlmavad muuhulgas: ajakava integreerimist, prioriseeritud meetmeid ristmikel või teepinna eraldamist ühistransporditeenuste jaoks. Mõnel muudatusel on suurem mõju pikematel, teistel lühematel sõitudel — seda kombinatsiooni peegeldab nii absoluutarvu- kui ka protsendipõhine sõiduaja lühendamine. Sõidukipargi ülemineku optimeerimine Heitekoefitsiendi Heitekoefitsiendi vähendamine vähendamine Süsinikdioksiidi keskmiste heitekoefitsientide vähendamine auto-, saavutab 2050. aastal saavutab 2050. aastal ühiskasutus- ja ühistranspordisõidukiparkide puhul. Heitekoefitsiendi maksimaalselt –25% maksimaalselt –5% vähendamise rakendamine kahanevas tempos (alguses kiiremini) kuni maksimaalse määrani 2050. aastal. Vähendamist võrreldakse 2050. aasta Sõidukite täituvus Sõiduki täituvus ei BAU-ga, mis eeldab ka heitekoefitsiendi vähenemist. suureneb vähem kui muutu 1% iga viie aasta Sõidukite keskmise täituvuse suurendamine auto-, ühiskasutus- ja tagant, saavutades ühistranspordisõidukiparkides. 2050. aastal Eesti auto-, jagatud ja ühistranspordi sõidukiparkide väljavahetamine nõuab maksimaalse 4%-se keskkonnasäästlikumate sõidukite osakaalu suurendamist, mis vähendab kasvu süsinikdioksiidi heitekoefitsiente. Sõidukipargi koosseisu muutus võib hõlmata sõidukite maksustamist heitkoguste alusel, et soodustada madalama heitkogusega sõidukite kasutuselevõttu, allahindlusi ja muid stiimuleid/antistiimuleid. Nende sõidukite täituvuse suurendamine võib nende kasutamist veelgi optimeerida. Seda on võimalik saavutada autode arvu vähenemise, autode ühiskasutuse või sõidujagamise stiimulite ja ühistranspordi optimeeritud sõiduplaani abil Meetmed, mis võivad parendada kulude katmist Ühistranspordi tariifi suurendamine 2025 (kasv 50%) 2025 (kasv 10%) Ühistranspordi kulude suurendamine kindla protsendi võrra. Erinevalt teistest meetmetest ei ole selle meetme eesmärgiks inimeste reisikäitumise mõjutamine. Pigem võimaldab PT tariifi tõusu testimine otsustajatel teha kindlaks, kas tariifide tõstmine vähendaks oluliselt sõitjate arvu (mis ei aitaks jätkusuutlikkuse eesmärkide saavutamisel). Kui negatiivne mõju on minimaalne, võib tariifide tõstmine parandada kulude katmist ja aidata ettevõtetel investeerida kvaliteetsematesse/sagedasematesse teenustesse. Märkus: * = viie minuti pikkune aja kokkuhoid kõigi sõitude puhul, kus viibimisaeg on pikem kui viis minutit. Riiklike reisijateveopoliitika meetmete modelleerimine Riiklike reisijateveopoliitika meetmete modelleerimine Riiklik reisijateveo mudel hindab meetmete mõju kolme määratletud (BAU, HA, LA) stsenaariumi põhjal. Keskendutakse rongisõidu parendamisele ja määratakse kasutajate käitumisele suunatud meetmete jaoks 166 raudteekoridoride kaupa. Joonis 20 on toodud ära mudelis määratletud viis ühendatud raudteekoridori/- teeninduspiirkonda ja kasutatavat tsoonisüsteemi. Poliitikameetmete põhjendused leiate 2. peatüki jaotisest „Kasutajate käitumise ja ühistranspordipoliitika juhtimine“ ning „Raudteekaubavedu ja infrastruktuur“. Joonis 20. Eesti riikliku reisijatemudeli ühendatud raudteekoridorid ja tsoonisüsteem Allikas: Eesti Maanteeameti (2018a) ja Open Street Maps’i (2020) GIS-andmed Järgmises tabelis kirjeldatakse riikliku reisijateveoga seotud meetmete modelleerimist ja nende rakendamise aastaid igas stsenaariumis. Tabel 7. Riiklike reisijaveomeetmete modelleerimine kõrge ja madala ambitsiooniga stsenaariumide korral Meetme kirjeldus Raudteekoridor Kõrged Madalad ambitsioonid ambitsioonid (rakendamise aasta) (rakendamise aasta) Raudteemeetmete ajakohastamine Raudteeliinide elektrifitseerimine Harju maakond Ei arvestata – juba Ei arvestata – juba elektrifitseeritud elektrifitseeritud CO2 heitekoefitsient elektrifitseeritud liinidel on null. E-W, Tallinnast Narva 2030 - 167 Meetme kirjeldus Raudteekoridor Kõrged Madalad ambitsioonid ambitsioonid (rakendamise aasta) (rakendamise aasta) Eeldatakse, et rongisõit elektrifitseeritud liinidel ei N-SE, ainult Tallinnast 2025 2030 tekita heitmeid. Analüüs ei hõlma elektri tootmisel Tartusse tekkivaid CO2 heitmeid piirdudes mahutist sõidukisse heitmetega. N-SE, kogu liin, 2025 - Tallinnast Valka/Koidulasse 168  Meetme kirjeldus Raudteekoridor Kõrged Madalad ambitsioonid ambitsioonid (rakendamise aasta) (rakendamise aasta) N-SW, Tallinnast 2025 - Pärnusse/Viljandisse Raudtee parendused Harju maakond 2025 2030 Kiirust suurendatakse keskmiselt 30% võrra 120 E-W, Tallinnast Narva 2030 - km/h-lt 160 km/h-ni. Ooteaeg väheneb 50%. Veeremite kavandatud suurenemise tõttu N-SE, ainult Tallinnast 2025 2030 eeldatakse sageduste kahekordistumist. Kiiruse Tartusse paranemine võib tuleneda nii elektrifitseerimisest kui ka muudest raudteele tehtud uuendustest. N-SE, kogu liin, 2025 - Tallinnast Valka/Koidulasse N-SW, Tallinnast 2025 - Pärnusse/Viljandisse Sõidukipargi optimeerimine Kõik sõidud Heitekoefitsiendi Heitekoefitsiendi vähendamine saavutab vähendamine saavutab Süsinikdioksiidi keskmiste heitekoefitsientide 2050. aastal 2050. aastal vähendamine auto-, ühiskasutus- ja maksimaalselt –25% maksimaalselt –5% ühistranspordisõidukiparkide puhul. Heitekoefitsiendi vähendamise rakendamine Sõidukite täituvus Sõiduki täituvus ei kahanevas tempos (alguses kiiremini) kuni suureneb vähem kui 1% muutu maksimaalse määrani 2050. aastal. Vähendamist iga viie aasta tagant, võrreldakse 2050. aasta BAU-ga, mis eeldab ka saavutades 2050. aastal heitekoefitsiendi vähenemist. maksimaalse 4%-se kasvu Sõidukite keskmise täituvuse suurendamine auto-, ühiskasutus- ja ühistranspordisõidukiparkides. Säästvate sõidukite osakaalu suurendamine Eesti autode, jagatud sõidukite ja ühistranspordi sõidukiparkides vähendab süsinikdioksiidi heitekoefitsiente. Sõidukipargi koosseisu muutus võib hõlmata sõidukite maksustamist heitkoguste alusel, et soodustada madalama heitkogusega sõidukite kasutuselevõttu, allahindlusi ja muid stiimuleid/antistiimuleid. Nende sõidukite täituvuse suurendamine võib nende kasutamist veelgi optimeerida. Seda on võimalik saavutada autode arvu vähenemise, autode ühiskasutuse või sõidujagamise stiimulite ja ühistranspordi optimeeritud sõiduplaani abil. Rahvusvaheliste reisijate- ja kaubaveopoliitika meetmete modelleerimine Raudteeparandused on Eesti jaoks ainus rahvusvaheline element, millele see peatükk keskendub. 2020. aasta veebruaris toimunud rahvusvahelise nõudluse seminaril välja toodud peamised meetmed seisnevad raudtee- ja maanteesektoris. Maantee- ja õhutranspordi kohta kättesaadavad piiratud andmed ei olnud piisavad transpordiliikide osakaalu üksikasjalikuks modelleerimiseks. Rahvusvaheliste reisijate- ja kaubaveomudelites hinnatakse samade raudteemeetmete mõju kui riiklikul tasandil. 169  Tabel 8. Rahvusvaheliste reisija- ja kaubaveomeetmete modelleerimine kõrge ja madala ambitsiooniga stsenaariumide korral Meetme kirjeldus Raudteekoridor Kõrged ambitsioonid Madalad (rakendamise aasta) ambitsioonid (rakendamise aasta) Raudteemeetmete ajakohastamine Raudteeliinide elektrifitseerimine ja kiiruse Harju maakond Ei arvestata – juba Ei arvestata – juba parendamine elektrifitseeritud elektrifitseeritud CO2 heitekoefitsient elektrifitseeritud liinidel E-W, Tallinnast Narva 2030 - sõitmisel on väga madal (mahutist sõidukisse heitkogus puudub). N-SE, ainult Tallinnast 2025 2030 Kiirust suurendatakse 30%. Tartusse Raudteekaubaveo tegevuskulud vähenevad elektrifitseeritud liinidel -30%. N-SE, kogu liin, Tallinnast 2025 - Valka/Koidulasse N-SW, Tallinnast 2025 - Pärnusse/Viljandisse Modelleeritud tulemuste tõlgendamine 3. peatükis esitatud näitajate raamistikus soovitatakse loetelu näitajatest, mille abil jälgida transpordipoliitika edenemist ja sellest teavitada. Järgmistes jaotistes käsitletud modelleeritud tulemused on omavahel otseselt seotud, kuid mõnel juhul pakuvad alternatiivseid viise, kuidas käsitleda selles raamistikus käsitletud samu teemasid. Ehkki raamistiku keskmes on suhtlemise lihtsus, on mudeli väljundid otseselt kohaldatavad otsuste tegemisele ning kasutatavad hilisemates hindamistes ja analüüsides. Järgmises tabelis kirjeldatakse kahe näitajate komplekti sarnasusi ja erinevusi. 170  Tabel 9. Modelleeritud näitajad, et jälgida poliitikameetmete mõju transpordivaldkonna tulemustele Meetme kirjeldus Transpordiliigi CO2 heitkogus Ligipääsetavus Taskukohasus osakaal: Reisijate näitajate Reisijakilomeeter CO2 heide 30 minuti jooksul reisimisele kulutatud raamistik (rkm) vastavalt sõidukikilomeetri (skm) ligipääsetavate kogusissetuleku % transpordiliigile kohta töökohtade arv (kõik transpordiliigid) madalaima sissetuleku kvartiili järgi Reisija mudelväljund Igapäevased reisid ja Päevane CO2 heitkogus Keskmine sõiduaeg Keskmine sõidukulu rkm vastavalt skm-i põhjal reisi* ja km kohta, reisi* ja km kohta, transpordiliigile transpordiliigi kohta transpordiliigi kohta Kaubaveo näitajate Tonnkilomeetrit (tkm) CO2 heitkogus Keskmine aeg Maksumus raamistik transpordiliigi kohta sõidukikilomeetri (skm) rahvusvahelise turuni eurodes/tkm kohta (või piirini) jõudmiseks Kaubaveo mudeli Aastane tkm vastavalt Aastane CO2 heitkogus Keskmine sõiduaeg Keskmine reisikulu väljund transpordiliigile tkm-i põhjal tkm-i kohta. tkm-i kohta Märkus: * = tulemused ühe reisi lõikes on toodud lisas 4.2. Transpordiliigi osakaal on oluline näitaja, mis juhib paljusid muid tulemusi. Reisijate- ja kaubaveoliikide jaotuse ning tuleneva iga transpordiliigi läbitud kilometraaži mõistmine moodustab hilisema analüüsi selgroo. Mudeliga arvutatakse CO2 heitkogused reisijatele mõeldud erasõidukite, jagatud sõidukite ja ühistranspordi sõidukiparkide läbitud vahemaa ja vahemaapõhiste heitekoefitsientide põhjal. Raudtee- ja maanteetranspordi puhul kasutatakse CO2 heitekoefitsiente tkm-i kohta. Ligipääsetavust mõõdetakse kättesaadavate andmete põhjal sõiduajana, mis on oluline sisend ka tasuvusanalüüside jaoks. Mudeliga mõõdetav sõiduaeg toetub ligipääsule kõikidele sihtkohtadele, mitte ainult töökohtadele. Töökohtade andmete ruumiline jaotus ei olnud kättesaadav. Taskukohasus põhineb samuti kõigil reisidel. Kulu reisi ja kilomeetri kohta saab korrutada kuu keskmistega, et mõista kui suured on kulud võrreldes sissetulekutega. Järgmistes jaotistes analüüsitakse nende põhinäitajate toimimist igas transpordisektoris, lähtudes igas stsenaariumis sisalduvatest soovitatud poliitikameetmetest. On oluline arvestada, et positiivne muutus ühes näitajas võib tunduda esile kutsuvat „negatiivse” muutuse mõnes teises näitajas. Näiteks üleminek aktiivsematele transpordiliikidele võib tähendada sõiduaegade pikenemist. Sageli ei olegi meetme eesmärk parandada kõiki neid näitajaid, vaid mõjutada nende seast ainult mõnda. Transpordimudelid ja nende tulemused aitavad mõista mõnda sellist erinevate tulemuste vahel saadavat kompromissi. On veel olulisi kaalutlusi, mida valitud näitajad ei hõlma ja mida on raske modelleerida, nagu füüsiline või vaimne tervis, elamisväärsus või elukvaliteet. 4.2 Reisijatevedu linnas kõrge ja madala ambitsiooniga stsenaariumites Strateegiline linnamudel võimaldab poliitikakujundajatel simuleerida poliitikastsenaariumite kogumõju linnatranspordile eratranspordi, jagatud liikuvuse (näiteks taksod), ühistranspordi, jalgrattasõidu ja kõndimise kaudu. Majapidamiste reisiuuringute (MRU) andmete kättesaadavuse tõttu keskendutakse 171 linnamudelis Harju maakonnale, kus asub Tallinn, ja osale piirnevast Rapla maakonnast ning tulemusi tuleks tõlgendada selles kontekstis. Eestis on suur potentsiaal linnaliiklust puudutavaks käitumismuutuseks. HA-stsenaariumis võivad autosõidud kaotada enamusosa, langedes alla kolmandikule kõigist sõitudest. Muudatused sõidukipargis koos autode asendamisega muude transpordivahenditega võiks HA-stsenaariumis vähendada CO2 heitkoguseid ligi 50% võrreldes BAU-stsenaariumiga. Eesti määratleb transporti enda riiklikus energia- ja kliimakavas (EÜ, 2018) ühe põhisektorina, mille pikaajaline eesmärk on vähendada 2050. aastaks kogu süsinikdioksiidi heidet 80% võrreldes 1990. aasta tasemega. Eesti on pühendunud ka lühema tähtajaga eesmärgile, milleks on heitkoguse vähendadamine 2030. aastaks kokku 13% võrreldes 2005. aastaga. Linnatranspordile suunatud poliitikameetmed võivad selle eesmärgi saavutamisele oluliselt kaasa aidata. Mudel katsetab poliitikastsenaariumite mõju transpordiliigi valikule koondtasemel, tuginedes allpool toodud joonisel näidatud tsoneerimisstruktuurile. Mudelit ei tohiks kasutada, et katsetada muutusi peenemal naabruskonna tasandil. Mudel reageerib muutustele igat transpordiliiki puudutavates sõiduomadustes, kuid ei kajasta muutusi maakasutuses ja seetõttu ka muutusi soovitud sihtkohtades. Sõitude jaotus jääb aja jooksul muutumatuks, ehkki mahud muutuvad. Maakasutuse ja transpordi koostoime nõuaks üksikasjalikumat andmestikku ja modelleerimist. Joonis 21. Linnamudeli katvuse ja tsoneerimissüsteemi ulatus Harju maakonnas / Raplas Allikas: Eesti Maanteeameti (2018a) ja Open Street Maps’i (2020) GIS-andmed Stsenaariumidesse on kaasatud kõik punktis 4 Tabel6 loetletud meetmed, välja arvatud ühistranspordi tariifi tõus. Teiste meetmetega püütakse soodustada üleminekut säästvale liikuvusele. Pakutud 172 ühistransporditariifi tõstmine on meede, et parendada ühistranspordiettevõtete kulude katmist. Selle meetmega tehtavaid katseid arutatakse eraldi tundlikkuse testina, et näidata, et tariifide tõus ei põhjusta märkimisväärset sõitjate arvu vähenemist ja seetõttu tuleks neid kaaluda. Transpordiliigi osakaal: Autoga tehtavad linnasõidud asenduvad ühistranspordi ja aktiivse liikumise kasutamisega 2018. aastal tehti üle 50% kogu linnas liikumisest autoga. Aastaks 2050 moodustavad autosõidud HA- stsenaariumis 28% kõikidest sõitudest, samas kui LA-stsenaariumis suuri muutusi ei esine (47% 2050. aastaks). Joonis 22 näitab, et HA-stsenaariumi korral jääb transpordiliikide jagunemine pärast 2030. aastat samaks, kuna 2030. aastaks on kõik meetmed täielikult juurutatud. LA-stsenaariumi korral võetakse meetmed järk-järgult kasutusele kuni 2035. aastani ja vähemal määral (vt Tabel6 meetmete kirjeldusi). Kui liikumiseks hakatakse kasutama alternatiivseid liikumisviise, moodustavad mõlema stsenaariumi korral enamuse kõndimine ja ühistransport. HA-stsenaariumis on kõndimise ja ühistranspordi osatähtsus vastavalt 34% ja 33% ning LA-stsenaariumis 28% ja 22%. HA-stsenaariumis moodustavad jagatud liikuvus ja jalgrattaga sõitmine 5% kõikidest sõitudest, mis on märkimisväärne kasv võrreldes 2018. aasta 2%-ga, kuid kui meetmeid rakendatakse vastavalt LA-stsenaariumile, on nende transpordiliikide osas BAUga võrreldes vähe edasiminekut. Joonis 22. Igapäevane linnareiside osakaal transpordiliikide kaupa vastavalt stsenaariumile Märge: BAU = tavapärase tegevuse, HA = kõrge ambitsiooni, LA = madala ambitsiooni stsenaariumid Eeldatakse, et läbitud reisijakilomeetrite (rkm) koguarv kasvab elanike arvu suurenemise tõttu aastatel 2020–2050 7,9 miljonilt 9,9 miljonile. 2018. aastal moodustavad valdava enamuse reisijakilomeetritest autosõidud (75%), kuna autosõidud on teiste transpordiliikidega võrreldes keskmiselt pikemad. 2050. aastaks väheneb auto rkm 42%-ni HA-stsenaariumis ja 68%-ni LA-stsenaariumis. 173  Joonis 23. Päevane reisijakilomeetrite osakaal linnaliikluses vastavalt stsenaariumile Märge: BAU = tavapärase tegevuse, HA = kõrge ambitsiooni, LA = madala ambitsiooni stsenaariumid. Osakaalud ümardatakse lähima täisarvuni. Rattaliikluse osakaal ümardatakse 0%-ni, kuna see on alla 0,5%. MRU tulemused näitavad, et piirkonna elanikud ei ole ühistranspordi maksumuse muutuste suhtes eriti tundlikud. Kui transiidiettevõtjate kulude katmise hõlbustamiseks taaskehtestatakse ühistranspordi tariif, viitavad tulemused vaid põgusale ühistranspordi kasutuse vähenemisele. Keskmise ühistransporditariifi 50% tõus toob 2050. aastaks kaasa ühistranspordireiside vähenemise vaid 1% võrra, põhjustades ühistranspordi osakaalu vähenemise ainult 0,2%. HA-stsenaariumis on kasutajalt tasu küsimine sõitude ja rkm-i osakaalude muutuse peamiseks põhjuseks. Ummiku- ja teekasutustasu koos toovad kaasa auto rkm-i osakaalu vähenemise 75%-lt 49%-le. Kõik muud meetmed aitavad kaasa täiendavale 7%-le langusele (49%-lt, mis tuleneb kasutajatelt tasu küsimiselt, lõplikule 42%-le ülalpool mainitud autosõidu osakaalule). LA-stsenaariumi korral on need muud meetmed ainsaks stiimuliks autokasutusest loobumiseks, kuna stsenaarium ei sisalda ummikutasu ja teekasutustasu kompenseerib kütusekulude vähenemine. Rattakasutamise muutuste suhtes pole antud mudel eriti tundlik. Kalibreerimiseks kasutatud MRU- andmed näitasid jalgratta kasutamises linnapiirkondades väga väikest osakaalu (vähem kui 0,5%). Rattasõidu nõudlus sõltub mudelis ainult sõiduajast ega arvesta selliste teguritega nagu ohutus ja mugavus. Selleks, et mõista elanike tundlikkust nimetatud tegurite suhtes, on vaja läbi viia eelistusuuringuid, mis parandaksid mudeli tundlikkust veelgi. CO2 heitkogus: Heitkoguse vähendamine transpordiliigi vahetuse ja sõidukiparkide optimeerimisega HA-stsenaariumi tulemusel väheneb CO2 heitkogus 2050. aastaks 43% võrreldes BAU heitkogusega samal aastal. Seevastu LA-stsenaariumis vähenevad heitkogused 10%. BAU-stsenaariumis on piirkonna CO2 heitkogus 2050. aastal umbes 869 tonni päevas, samas kui HA-stsenaariumi korral väheneksid 2050. aastal päevaseid heitkogused 495 tonnini. Enamik meetmetest vähendaksid isikliku auto kasutamist, nagu eelmises jaotises märgitud. Mida väiksemad on autoga läbitud rkm-d, seda väiksemad on ka CO2 174 heitkogused. Need meetmed toovad 2050. aastal BAUga võrreldes kaasa CO2 vähenemise 19% HA- ja 5% LA-stsenaariumi puhul. Ülejäänud vähenemine (24% HA-stsenaariumis) on tingitud sõidukite maksustamisest ja sõidukite täituvuse muutustest. Sõidukite maksustamispoliitika, mis tugineb nende heitkoguste määrale (kõrgemad maksud kõrgema heitkogusega sõidukitele), soodustab vähese heitega sõidukite ostmist. Vähese heitkogusega sõidukite osakaalu suurenedes Eesti sõidukipargis, vähenevad ka keskmised heitekoefitsiendid skm-i kohta. Sõidukite hõivatuse suurendamine autoomamist pärssides, kulude suurendamine, autode ühiskasutuse soodustamine jms vähendavad veelgi läbitud skm-e, millel on koondmõju CO2 heitkoguse vähenemisele. Joonis 24. Reisijateveost linnapiirkonnas tulenev modelleeritud päevane CO2 heitkogus stsenaariumi lõikes Taskukohasus: Kasutusmaksu kehtestamine suurendab auto kasutamise kulusid ülemineku soodustamiseks Enamik linnameetmeid keskendub käitumise muutmisele; keskkonnasäästlikud transpordiliigid muudetakse „atraktiivsemaks”, samas kui eraauto kasutamine muudetakse vähem atraktiivseks. Transpordiliigiga seotud kulude suurendamine on üks tõhusamaid viise käitumise muutmiseks. Nagu eelmistes jaotistes märgitud, vastutab HA-stsenaariumis saavutatud transpordivahendi vahetuse eest suuresti kasutajatelt tasu küsimine. Selle tulemusel suurenevad autoga sõitmise kulud ja autosõidu taskukohasus kahaneb. Ehkki ühe liikumisviisi vähem taskukohaseks muutmine võib tunduda negatiivse tagajärjena, toob just taoline kulude suurenemine kaasa positiivse nihke ühistranspordi kasutamise, jalgrattasõidu ja jalgsi liikumise suunas. Nende meetmete üheks peamiseks mõjuks ongi erinevate transpordiliikide suhtelise taskukohasuse muutmine. Kaaluda tuleb täiendavaid poliitikameetmeid nagu näiteks toetusprogrammid, et ei koormataks ülemäära inimesi, kellel pole teenuste kättesaadavuse tõttu võimalust teistele transpordiliikidele üle minna. Tabel 10 toob ootuspäraselt ära, et sõidu ühikuhind kilomeetri kohta tõuseb enim autosõidule, peamiselt kasutajate maksustamise tõttu. Jalgrattasõite ja jalgsikäike loetakse kuluvabaks. Jagatud ja ühistranspordi ühikukulud vähenevad veidi. Kuna jagatud liikuvuse ja ühistranspordi kuludes otseseid muutusi pole, sest stsenaariumid esitatakse ilma ühistranspordi tariifi tõusuta, ei pruugi järeldused tunduda esmapilgul intuitiivsena, mõistmata kuidas ühistranspordi ja jagatud liikuvuse kulusid arvutatakse. Auto kasutamise kulude kasvades minnakse pikemateks autosõitudeks BAU-stsenaariumis üle jagatud ja ühistranspordile. Jagatud liikuvuse kulud põhinevad püsikulul ja kilomeetripõhisel tasul. Kui pikemate ühiste sõitude osakaal 175 suureneb, väheneb keskmine kilomeetrikulu, kuna püsikulu on hajutatud suuremale kogukilomeetrite arvule. Ühistranspordi kulude prognoos põhineb Harju piirkonna ühistranspordi tsoonisüsteemil. Tsoonidevahelised kulud ei suurene lineaarselt; kolme tsooni vahel liikumine on kolm korda odavam kui ühes tsoonis liikumise hind. Seega, kuna ühistranspordi kasutamise osakaal sellistel pikematel sõitudel suureneb, on väiksem ka keskmine kilomeetrikulu. Muutusi liikumismustrites selgitab kõigi transpordiliikide kaalutud keskmine. Ehkki toimuv üleminek ühistranspordile ja aktiivsetele liikumisviisidele on märkimisväärne, tähendab ühise liikuvuse ja autokasutuskulude suurenemine (mis moodustavad endiselt märkimisväärse osa kogu rkm-st), et keskmine sõidukulu km-i kohta tõuseb. Tabel 10. Keskmine sõidukulu kilomeetri kohta vastavalt transpordiliigile Stsenaarium Auto Jagatud liikuvus Ühistransport Jalgratas Kõndimine Kõik liigid Tavapärane 0,14 EUR 1,74 EUR 0,09 EUR 0 0 tegevus 0,15 EUR Kõrged 0,39 (+174%) 1,54 (–12%) EUR 0,07 (–22%) EUR 0 0 0,29 (+91%) EUR ambitsioonid EUR Madalad 0,20 (+41%) 1,72 (–1%) EUR 0,09 (–7%) EUR 0 0 0,19 (+24%) EUR ambitsioonid EUR Allikas: Autosõidu kütusekulud on arvutatud IEA MoMo mudeli (2018) ja veebilehe Global Petrol Prices (2020) põhjal; jagatud liikuvuse kulud Tallinna Turismiameti ja konverentsibüroo põhjal (2020); ühistranspordi hinnad põhinevad Pilet.ee (2020), Samati (2020) andmetel ning 2020. aasta aprilli veebiseminari aruteludel. Keskmine sõidukulu transpordiliigi kohta muutub samas proportsioonis sõidukuluga kilomeetri kohta, kuna need võtavad arvesse muutusi sõidu- ja reisimismustrites. 2050. aastal on reisi keskmine maksumus HA- stsenaariumi korral on 1,79 eurot ja LA puhul 1,16 eurot. See kujutab endast BAU-stsenaariumiga, 0,94 eurot reisi kohta, võrreldes 91% ja 24% muutust, peamiselt tulenevalt sellest, et kasutajad autosõidu eest tasu võtavad. Reisi keskmise maksumuse täpsem jaotus transpordiliikide kaupa on esitatud lisas 4.2. Kui ühistranspordi tariifi tõstetakse, nagu on kirjeldatud tabelis 6 Tabel6, siis võrreldes samal aasta BAU- stsenaariumiga tõuseb kilomeetrikulu HA- ja LA-stsenaariumides vastavalt 17% ja 40%, selle asemel, et väheneda, nagu on esitatud tabelis 10 Tabel 10. Transpordiliigi osakaal ja sõidu omadused, nagu kirjeldatud eespool, muutuvad tariifi tõusu tagajärjel minimaalselt. Vähekaitstud kasutajatele tuleks pakkuda sihtotstarbelisi toetusi, et tagada tasakaal taskukohasuse ja rahalise jätkusuutlikkuse vahel. Täiendavate soovituste saamiseks vaadake 2. peatüki jaotist 2.5. Kasutajate käitumise ja ühistranspordi poliitika suunamine. Ligipääsetavus: Aktiivsete transpordiliikide ja ühistranspordi sõiduaeg väheneb ja nende osakaal suureneb Stsenaariumides toodud poliitikameetmed mõjutavad otseselt auto ja ühistranspordi kulusid, samas kui mõjud teiste transpordiliikide kuludele on transpordiliigi valiku muutuste tõttu teisejärgulised. Seevastu sõiduaega mõjutavad kõigi transpordiliikide juures erinevad meetmed, et julgustada üleminekut säästvamatele liikumisvõimalustele. Autode sõiduaeg pikeneb seoses tänavavälise parkimise muudatustega Tallinnas. Tänavaruumi ümberjaotamine aktiivsete liikumisviiside prioriseerimiseks pikendab nii auto kui ka jagatud 176 liikumisteenuste sõiduaega, vähendades samas aktiivse liikumise aega – sealhulgas ühistranspordi kasutamise osa, mis kulub peatuseni kõndimiseks. Teenuste integreerimisega saavutatud parenduste tõttu vähenevad ka ühistranspordis viibimise ja ühistranspordi ooteajad. Need muudatused on peegeldatud saadud sõiduajas km-i kohta iga transpordiliigi puhul: 2050. aastal paranevad ühistranspordi sõiduajad HA- stsenaariumis võrreldes BAUga 17%, samas kui jalgratta puhul vähenevad need 7% ja jalgsi liikumise puhul 8%. Auto ja jagatud liikuvuse kiirused langevad. Võrreldes BAU-stsenaariumiga pikeneb keskmine sõiduaeg 43%, kuna rohkem kasutatakse aeglasemaid (kuid säästlikumaid) transpordiviise. 2050. aastaks on ühistranspordi ja aktiivse liikumise ajad jõudnud samale tasemele nii HA- kui LA- stsenaariumites. LA-stsenaariumis auto kasutamise maksustamist siiski ei rakendata. HA-stsenaariumis toob iseäranis Tallinna ummikumaks kaasa Tallinna-põhiste autosõitude ülemineku alternatiivsetele liikumisviisidele. ilma selle muudatuseta Tallinnas, mõjutab linnas tänavaruumi ümberjaotamisest tingitud kiiruse vähenemine suuremat osa autosõitudest LA-stsenaariumi korral, suurendades keskmist sõiduaega rohkem kui HA-stsenaariumis (29% võrreldes 18%-ga). LA-stsenaariumis on võrreldes BAU-ga reiside lõikes üleminekuid üldiselt vähem. Seetõttu on LA-stsenaariumi korral Tallinna-põhiseid jagatud reise, millele kohalduvad sõiduaja pikenemised, rohkem, võrreldes HA-stsenaariumiga, kus minnakse üle ühistranspordile. Seetõttu on jagatud reiside ajad LA-stsenaariumis ka keskmiselt pikemad. Tabel 11. Keskmine sõiduaeg (min) kilomeetri kohta vastavalt transpordiliigile Stsenaarium Auto Jagatud liikuvus Ühistransport Jalgratas Kõndimine Kõik liigid Tavapärane 1,3 1,3 5,6 3,3 13,1 2,9 tegevus Kõrged 1,5 (+18%) 1,5 (+17%) 4,6 (–17%) 3,1 (–7%) 12,1 (–8%) 4,2 (+43%) ambitsioonid Madalad 1,7 (+29%) 1,7 (+33%) 4,6 (–17%) 3,1 (–7%) 12,1 (–8%) 3,3 (+13%) ambitsioonid Märge: Sellel strateegilisel tasandil ei modelleerita ummikuid (kiiruse muutusi) vastusena muutustele nõudluses. Allikas: Sõiduaegade arvutused põhinevad OpenStreetMap (2020) teedevõrgu ja Eesti Maanteeameti (2020) esitatud Eestit hõlmavatel GTFS-andmetel Keskmine sõiduaeg transpordiliigi kohta muutub samas vahekorras muutustega ühe kilomeetri kohta, kuna need võtavad arvesse muutusi sõitmismustrites. 2050. aasta HA-stsenaariumis on keskmine sõiduaeg 25,9 minutit ja LA-stsenaariumis 20,6 minutit. See tähendab vastavalt 43% ja 13% muutust võrreldes BAU tulemusega, mis oli 18,2 minutit reisi kohta. Täpsem jaotus keskmisest teelolekuajast ühe sõidu kohta on esitatud transpordiliikide kaupa lisas 4.2. Selles mudelis eeldatakse, et sõidumustrid on staatilised. Seda tuleks ligipääsetavuse ja taskukohasuse tulemuste tõlgendamisel arvesse võtta. Maakasutusviiside mustrid ja sihtkohtade asukohad jäävad aja jooksul samaks. Kui linnades prioriseeritakse aktiivseid liikumisviise ja ühistransporti, hoolimata nende transpordiliikide kiiruse paranemisest, võib keskmine reis maksta rohkem või võtta rohkem aega lihtsalt seetõttu, et inimesed hakkavad nende kasutama neid transpordiliike uutesse sihtkohtadesse jõudmiseks. Kuid see üleminek soodustab pikas perspektiivis maakasutusmudelite muutumist kompaktsemateks arendusteks. See heidutab inimesi sõitma töö-, äri- ja vabaajareisidele. Kuna paraneb ühistranspordi tagatav ühenduvus ja ligipääs jalakäijate ja jalgrattateedele, võivad need sõiduvahemaad muutuda lühemaks, parandades veelgi keskmist sõiduaega ja kuluomadusi. Lisateavet transpordi ja maakasutuse 177 vaheliste ühenduste parendamise kohta leiate 2. peatüki jaotisest 2.5. Kasutajate käitumise ja ühistranspordi poliitika suunamine. 4.3 Riiklik reisijatevedu kõrge ja madala ambitsiooniga stsenaariumites Riiklik reisijateveo mudel simuleerib raudtee parendamise meetmete ning auto ja ühistranspordi sõidukiparkide muudatuste kogumõju. Mudel keskendub raudtee-, bussi- ja autotranspordile, mis on linnadevahelistes sõitudes peamisteks transpordiliikideks. Mudelisse on kaasatud nii tsoonidevahelised kui ka tsoonisisesed sõidud. Kõndimist, jalgrattasõitu ega jagatud transpordiliike mudelisse ei kaasatud, kuna need on tavaliselt rakendatavad ainult lühematele linnareisidele ega ole seetõttu linnadevaheliste vahemaade jaoks kohaldatavad. Raudteeteenuse parendamine toob kaasa rongisõidu märkimisväärse kasvu võrreldes praeguse tasemega. Rongireisijate praeguse suhteliselt väikese üldise osakaalu tõttu ei muudaks need tulemused aga riigi tasandil kuigi palju. Kuna auto- ja bussisõit moodustavad rkm-st suurema osa, moodustab üleminek säästlikumatele era- ja avalikele sõidukiparkidele suurema osa 30%-st CO2 heitkoguste vähenemist riiklikus reisijateveos HA-stsenaariumis. Transpordiliigi osakaal: Riiklik reisijatevedu läheb üle raudteetranspordile, kuna koridoride teenindus paraneb. Kasutajate käitumisele suunatud meetmed keskenduvad rongisõidu parendamisele. Raudtee parendamise meetmed mõjutavad rongisõidu kiirust ja teenindussagedust, mis toovad 2050. aastal kaasa reiside üldise suurenemise 85% HA-stsenaariumis ja 65% LA-stsenaariumis võrreldes BAUga. Raudteeliikluse üldine osakaal suureneb parenduste tõttu HA-stsenaariumis 2%-lt 4%-ni ja LA-stsenaariumis 3,5%. Ehkki transpordiliigi osakaal HA-stsenaariumis peaaegu kahekordistub, tähendab see siiski tagasihoidlikku muutust riiklikus liikumisvahendite üldises osakaalus, mis tuleneb auto kasutamise ülekaalust riigisisestel reisidel. Hinnangus ei võeta arvesse otseseid meetmeid bussireiside jaoks, mistõttu jääb bussireiside osakaal üldiselt muutumatuks, samas kui rongisõidule ülemineku taga on autokasutajad, kes autosõidu raudteetranspordi vastu vahetavad. Mudel ei ole tundlik kasutajate valikule rongi- ja bussisõidu vahel, kuna puuduvad mudelipõhised andmed üleriigilisest MRUst või eelistuste uuringust. Jaotust rongi- ja bussisõidu vahel hinnatakse selle asemel järeltöötluse meetmete abil. Nende piirangute tõttu eeldatakse, et bussiteenused püsivad muutumatuna ja raudteetranspordi meetmed põhjustavad transpordivahendi vahetamise ainult auto puhul. See eeldus põhineb asjaolul, et bussiteenuste konkureerimisel raudteetranspordiga väheneks tõenäoliselt bussisõitjate arv raudteeteenuse parema kvaliteedi tõttu. Bussiliinid pakuvad aga raudteetranspordile olulist juurdepääsuteenust ja seetõttu on oodata nende liinide nõudluse kasvu, et rahuldada raudteetranspordi kasvavat nõudlust. Üldiselt eeldatakse, et need kasvud ja langused ei põhjusta rongiliikluse sagenemise ja teenindustaseme paranemise tõttu bussiteenuse turul olulist netomuutust. 178  Joonis 25. Igapäevaste rongireiside muutus vastavalt stsenaariumile Joonis 26. Igapäevane riigisisese reisijateveo transpordiliigi osakaal vastavalt stsenaariumile Rkm-i osakaalu üleriigiline muutus on väiksem kui reisi osakaalu oma (mõlemas stsenaariumis umbes 1%). Sellel võib olla kaks põhjust. Esiteks tundub autolt rongile üleminek toimuvat suhteliselt lühemateks sõitudeks. Lisaks hõlmab reis, kus raudtee on põhiliseks transpordiliigiks, peatusesse jõudmiseks ka teatud osas raudteevälist liikumist, kas auto või bussiga. Seetõttu ei suurene raudtee rkm sama palju kui rongireis. 179  Joonis 27. Igapäevaste rongireisijakilomeetrite muutus vastavalt stsenaariumile Joonis 28. Igapäevaste reisijakilomeetrite osakaal riigisiseses reisijateveos vastavalt stsenaariumile Tulemusi koridori kaupa disagregeerides ilmneb kõige suurem rongireisijakilomeetrite kasv Harju maakonnas, kus on raudteetranspordi osakaal mitme raudteeliini, tiheda asustuse ja seetõttu raudtee suurima kasutuse tõttu algusest peale kõige suurem. N-SE koridoris Tallinnast Tartusse ja edasi lõunasse on suuruselt teine absoluutne rkm-ide muutus, mis tuleneb koridori suuremast sõidumahust. Kuid protsentuaalse kasvuna võrreldes BAU-stsenaariumi rongireisijakilomeetritega, ei ole kasv nii suur, kuna piki koridori paiknevate konkureerivate bussiliinide tõttu on saadaval ka alternatiivseid ühistranspordi võimalused. Suuruselt teine raudteetranspordi protsentuaalne kasv võrreldes BAU-stsenaariumiga tuleneb N-SW koridorist, mis teenindab praegu Viljandit. 180 Tabel 12. Muutus igapäevastes rongireisijakilomeetrites raudteekoridori ja stsenaariumi kaupa 2050. aastal Raudteekoridor Igapäevaste rongireisijakilomeetrite rongireisijakilomeetrite absoluutne kasv võrreldes BAUga suurenemise % võrreldes BAUga Kõrged Madalad Kõrged Madalad ambitsioonid ambitsioonid ambitsioonid ambitsioonid Harju maakond 428 000 428 000 99% 99% (*) (0% enne 2030. aastat) E-W, Tallinnast Narva 76 000 0 28% 0% N-SE, kogu liin, Tallinnast 89 000 42 000 13% 6% Valka/Koidulasse N-SE, ainult Tallinnast Tartusse 61 000 42 000 14% 10% N-SW, Tallinnast Pärnusse/Viljandisse 104 000 0 44% 0% Märkus: (*) Harju on elektrifitseeritud nii HA- kui ka LA-stsenaariumis, kuid LA puhul hiljem, aastal 2030 (2025. a HA stsenaariumis). Mis tähendab, et kaks alternatiivset stsenaariumi ei erine enam üksteisest pärast 2030. aastat. Enne 2030. aastat on LA muutus aga 0%. CO2 heitkogus: Riiklikust reisijateveost tulenev heide väheneb tänu elektrifitseerimisele ning üleminekule raudteetranspordile HA stsenaariumi tulemusel väheneb CO2 heitkogus 2050. aastaks 29% võrreldes BAU heitkogusega samal aastal. Seevastu LA-stsenaarium toob kaasa kõigest 6%-se vähenemise. 2050. aastal vähenevad Eesti CO2 heitkogused ligikaudu 635 000 tonnilt aastas BAU-stsenaariumis 140 000 tonnini HA stsenaariumis. Kõik meetmed aitavad kaasa CO2 heitkoguse vähenemisele. Rkm-i osatähtsus transpordiliigi kohta reageerib teenuseparendustele. Heitekoefitsiendid muutuvad raudtee elektrifitseerimise ning sõidukipargi koosseisus ja täituvuses tehtavate muutuste tõttu. Joonis 29. Riiklikust reisijateveost tulenevad igapäevased süsinikdioksiidi heitkogused stsenaariumide kaupa 181 Raudteede täielikul elektrifitseerimisel HA-stsenaariumis eeldatakse, et kõik rongireisid on heitevabad (arvestades mahutist sõidukisse heitkoguseid). Well-to-wheel heitkoguste hinnangud põhinevad elektritootmise heitekoefitsiendi Euroopa keskmisel. Arvestades raudteetranspordi suhteliselt väikest osakaalu, toovad elektrifitseerimine ja teenuste täiustamine koos 2050. aastal kaasa kõigest 2% CO 2 heitkoguse vähenemise HA-stsenaariumis ja 1% vähenemise LA-stsenaariumis (mis peamiselt tuleneb transpordiliikide üleminekust raudteetranspordile). Allpool olev joonis toob välja raudteetranspordi heitkoguste muutuse ajas. Joonis 30. Süsinikdioksiidi heitkoguste muutus, mis tuleneb riiklikust rongisõidust, võrdlus mahutist sõidukisse ja well-to-wheel vahel LA-stsenaariumi korral ei kompenseeri Harju ja Tallinn-Tartu raudteeliinide elektrifitseerimine suurenenud raudteeliikluse tõttu kasvanud well-to-wheel tulenevaid raudteetranspordi heitkoguseid. Suurema osa CO2 heitkoguse vähenemisest on põhjustatud muutustest sõidukiparkide koosseisus ning nii autode kui ka busside täituvuses. Kui Eesti sõidukipargid lähevad suuremal määral üle madalama heitkogusega sõidukitele, vähenevad keskmised heitekoefitsiendid sõidukikilomeetri kohta, nagu linnatulemuste osas varem selgitatud. Sõidukite mahutavuse suurendamine vähendab läbitud sõidukikilomeetreid, vähendades nii veelgi CO2 heitkoguseid. Allpool olev joonis toob välja selle muutuse auto- ja bussiliiklusest põhjustatud heitkogustes, mis põhjustavad vastavalt 82% ja 17% kogu heitkogustest. Joonis 31. Muutus auto- ja bussisõidu põhjustavas päevases süsinikdioksiidi heitkoguses stsenaariumi kaupa 182 Taskukohasus: Sõidukulu reisi kohta praktiliselt ei muutu Meetmed ei mõjuta sõidukulusid otseselt. Kuigi transpordivahendi valiku muutmine võib kulusid veidi muuta, nagu linnade puhul näha, ei muuda riigisisese rongisõidu kasv kogu transpordiliigi osakaalu piisavalt järsult, et muuta kogusõidukulusid reisi kohta riiklikul tasemel Ligipääsetavus: Teenuse parendamise tõttu väheneb rongiga sõitmise aeg Raudteeteenuse parendamine on ainus meede, mis mõjutab transpordiliigi valikut, vähendades sõiduaega 30% ja ooteaega (suurema teenindussageduse tõttu) 50%. HA-stsenaariumis puudutab see muutus kõiki rongireise, samas kui LA-stsenaariumis eeldatakse, et muutuvad ainult Harju maakonna ja Tallinn-Tartu raudteeliinid. Maanteeinvesteeringute täiendavad katsed Kahte alternatiivsesse stsenaariumi ei kaasatud järgmisi täiendavaid teedeinvesteeringuid, kuid neid hinnati Eesti ametiasutuste jaoks eraldi ja sõltumatute katsetena. Teeinvesteeringud koosnevad põhimaantee koridorilõikude parendustest, kus mõlemal küljel on ainult üks rada või 2 + 1 rada. Katsetes tehakse investeeringuid kõigi valitud teelõikude laiendamiseks 2 + 2 sõidurajale, mille keskmine kiirus on 113 km/h ühel juhul. Teisel juhul laiendatakse ainult 1 + 1 lõike 2 + 1 rajale kiirusega 102 km/h (välja arvatud Tallinna ringtee lõigud, mida laiendatakse 2 + 2 rajale, kuid hiljem). Sellest tulenev aja kokkuhoid iga koridori kohta (vastavalt Eesti Maanteeametile) on ära toodud Tabel 13, mis näitab ka hindamise alusena kasutatud stsenaariume (HA-stsenaariumis* 2 + 2 arendus ja LA-stsenaariumis* 2 + 1 arendus), isegi kui neid meetmeid ei ole kaasatud lõplike HA- ja LA-poliitikastsenaariumite hulka. Tabel 13. Teede parendamisest tulenevad eeldused Rakendamise aasta Kiirus katsetamine Parandatavate Aja Tee parendused koridori Keskmine päevane suureneb alternatiivse lõikude pikkus kokkuhoid kaupa liiklus 2018. aastal (alates -> stsenaariumi korral km-des minutites kuni) km/h HA* LA* 183 Harju Tallinna ringtee (2 + 9 795 8 90 -> 113 1 14 150 2025 2030 maakond 2) 15 218 31 102 -> 113 2 Tallinn-Narva (2 + 1) E_W 111 90 -> 102 9 2030 (LA*) 6 013 Tallinn-Narva (2 + 2) 6 013 111 90 -> 113 15 E_W 8 435 2025 (HA*) 11 437 89 102 -> 113 5 Tallinn-Pärnu (2 + 1) N_SW 86 90 -> 102 7 2030 (LA*) 8 861 Tallinn-Pärnu (2 + 2) 8 861 86 90 -> 113 12 N_SW 10 227 2025 (HA*) 18 968 15 102 -> 113 1 Tallinn-Tartu (2 + 1) N_SE 79 90 -> 102 6 2030 (LA*) 8 108 Tallinn-Tartu (2 + 2) 8 108 79 90 -> 113 11 N_SE 9 906 2025 (HA*) 11 925 90 102 -> 113 5 Allikas: Eesti Maanteeamet * Märkus: siin äratoodud stsenaariumid on need, mida kasutatakse testi läbiviimiseks, tulemuste arvutamiseks ja esitamiseks, isegi kui neid meetmeid ei kaasata lõplikesse HA- ja LA-stsenaariumitesse. Eeldame, et liiklus on valitud teelõigul praegu suletud ja puuduvad reaalsed alternatiivsed marsruudid. Sellest hoolimata toob kiiruse suurenemine küll kaasa liikluse ülemineku ühtedelt transpordiliikidelt teistele ent mitte üleminekut teistelt teedelt. Kasutame oma mudelit, et hinnata transpordi üleminekut maanteele, kasutades Tabel 13 äratoodud sõiduaja kokkuhoidu. Tabel 14 ja Tabel 15 on toodud tulemused vastavalt liiklusele lõigu ja koridori kohta (koridor vastab siin lähte-sihtkohtade rühmale, maakonnast maakonda). Tabel 14. Parendatud tee liiklustulemused lõigu kohta (keskmine päevane liiklus) Keskmine Liikluse suurenemine teelõigul päevane Parendatav stsenaariumis stsenaariumis liiklus teelõik HA* (2 + 2) LA* (2 + 1) 2018. aastal Tallinna 14 150 ringtee 3% 3% Tallinn- 8 435 Narva 9% 5% Tallinn- 10 227 Pärnu 8% 5% Tallinn- 9 906 Tartu 13% 5% 184 Ümbersuunamisest tulenevad liikluse suurenemised on meie hinnatud teelõikudel üsna tagasihoidlikud, ulatudes 3%-st Tallinna ringteel 13%-ni Tallinn-Tartu liinil (Tabel). Tabel 15 hõlmab iga piirkonna kõiki autosõite, nii et igapäevaste autosõitude koguarvu suhteline kasv näib veelgi väiksem: võrreldes BAU-ga toob HA* (2+2 rada) stsenaarium kaasa autoliikluse kogukasvu 0,4%, mis on kaks korda suurem kui LA* (2+1) stsenaariumis (0,2%). Hinnatud teeparendustest saab kõige rohkem kasu N-SW telje (Tallinn-Pärnu) koridor, kus HA* stsenaariumi korral kasvab igapäevaste autosõitude koguarv 0,8%. Suhteliselt väljendades on need tulemused sõidukikilomeetrite ja reisijakilomeetrite arvu poolest väga sarnased. Tabel 15. Parendatud tee liiklustulemused koridori kohta (igapäevaste autosõitude koguarv) HA* LA*/ Koridor BAU 2050 HA* 2050 / LA* 2050 BAU BAU Harju maakond 432 900 433 500 0,16% 433 500 0,16% E_W 180 200 181 400 0,7% 180 800 0,4% N_SW 169 300 170 600 0,8% 170 100 0,5% N_SE 280 900 282 700 0,7% 281 700 0,3% Terve riik 1 080 900 1 085 500 0,4% 1 083 600 0,2% Tabel 16 ja Tabel 17 esitavad tulemused taskukohasusest ja ligipääsetavusest kogu riigi tasandil (et võimaldada igasuguste meetmete võrdlemist). Keskmine autosõidukulu reisi ja kilomeetri kohta ei tõuse võrreldes BAU-stsenaariumiga. Siiski tõuseb autosõidu kogukulu autosõitude arvu suurenemise tõttu (+0,4% HA* stsenaariumis). Kõigi transpordiliikide keskmine sõidukulu suureneb (HA* stsenaariumi korral 0,2%) samuti odavamalt ühistranspordilt autole ülemineku tõttu. Kooskõlas liiklustulemustega on HA* stsenaariumi sõidukulud kaks korda suuremad kui LA* stsenaariumis. Tabel 16. Tee parandamise taskukohasuse tulemused (kogu riigis) Keskmine Keskmine Sõidukulu kokku sõidukulu reisi sõidukulu km (EUR) kohta (eurodes) kohta (eurodes) HA* / LA*/ HA* / LA*/ HA* / LA*/ BAU BAU BAU BAU BAU BAU autod 0,4% 0,3% 0,0% 0,0% 0,0% 0,0% kõigi liikide keskmine 0,2% 0,1% 0,2% 0,1% 0,1% 0,0% Mõlemas stsenaariumis väheneb nii kogu sõiduaeg kui ka keskmine sõiduaeg (reisi ja kilomeetri kohta) (– 1,4% HA* ja –0,7% LA* puhul). Selle põhjuseks on sõiduaja kokkuhoid tulenevalt parendatud teedest ja suurenenud kiirustest. Sõiduaja lühenemine kõikide transpordiliikide lõikes on HA* stsenaariumi korral – 1,1% ja LA* stsenaariumi korral –0,6% (Tabel). 185  Tabel 17. Maantee parendamise katsete ligipääsetavuse tulemused (kogu riigis) Keskmine Keskmine Kogu sõiduaeg sõiduaeg sõiduaeg (min) (min/reis). (min/km) HA* / LA*/ HA* / LA*/ HA* / LA*/ BAU BAU BAU BAU BAU BAU autod –0,9% –0,5% –1,4% –0,7% –1,4% –0,7% kõigi liikide keskmine –1,1% –0,6% –1,1% –0,6% –1,3% –0,7% Kokkuvõtteks võib öelda, et eespool hinnatud teeinvesteeringute stsenaariumid (kõigi valitud teelõikude laiendamine 2 + 2 sõidurajale või ainult 1 + 1 lõikude laiendamine 2 + 1 sõidurajale) toovad üldise reisiaja ja sõidukulude osas kaasa ainult marginaalse arengu. See tulemus on peamiselt tingitud hetkel suhteliselt madalast liiklusest analüüsitud koridorides ja teelõikudel. Näib, et seetõttu ei õigusta need tulemused märkimisväärseid investeeringuid. Kuid me ei ole läbi viinud võrdlevaid tasuvusanalüüse, et nende paranduste sotsiaalseid kulusid ja tulusid veelgi analüüsida ja võrrelda. 4.4 Rahvusvaheline reisijatevedu kõrge ja madala ambitsiooniga stsenaariumites See hinnang puudutab ainult rahvusvahelist reisijatevedu rongiga HA- ja LA-stsenaariumites. Veebruaris toimunud rahvusvahelise nõudluse seminaril välja toodud peamised meetmed seisnevad raudtee- ja maanteesektoris. Lisaks ei olnud maantee- ja õhutranspordi kohta kättesaadavad piiratud andmed piisavad transpordiliikide osakaalu üksikasjalikuks modelleerimiseks. Rahvusvahelised rongireisid on koondunud ida-lääne teljele Tallinn-Narva-Vene Föderatsioon. Arvestades selle liini keskmise reisi pikkust (umbes 16 tundi Tallinnast Moskvasse, sealhulgas rohkem kui 1 tund ja 30 minutit peatusi piiril), ei oma raudtee kiiruse parendamine Eestis reisijateveole olulist mõju. Eesti raudtee kiiruse 30% suurenemine kiirendaks Tallinn-Moskva liinil sõiduaega vaid 5%. Ainus mõõdetav tulemus puudutab CO2 heitkoguste vähenemist tulenevalt ida-lääne raudteetelje elektrifitseerimisest HA-stsenaariumis. Sagedusel üks rong päevas ühes suunas (728 rongi aastas) 153 km- l raudteeteljel, mille keskmine diislikütusekulu on 1,7 l/km (sisaldab 3,07 kg CO2 liitri kohta, (UNECE 2012)), kujutab see endast umbes 580 tonni CO2 aastas, mida võiks vähendada elektrivedurite kasutuselevõtuga (mahutist sõidukisse hinnangud). 4.5 Kaubavedu kõrge ja madala ambitsiooniga stsenaariumites Andmete puudumine kaupade autoveo kohta lähte-sihtkoha ja kaubaliigi järgi on piiranud kaubaveo analüüsi ulatust. Ilma selliste andmeteta on kaubaveomudeli hindamine transpordiliigi järgi keeruline. Selle asemel hinnatakse kaubaveomudelis peamiste poliitikameetmete mõju, toetudes Eesti raudteekaubaveovoogude andmekogumi põhjal välja töötatud mudelile. See andmekogum sisaldab teavet veetavate kaupade mahust tonnides kauba liigi, päritolu- ja sihtriigi ning Eestis kasutatava raudteetelje kohta. Seejärel hinnatakse nende voogude muutusi kahes alternatiivses stsenaariumis, kasutades ITF-i ülemaailmse kaubaveomudeli jaoks eraldatud kulude elastsust lähte-sihtkoha ja kauba järgi. 186 Järgmised hinnangud põhinevad peamiselt 2018. aastal mõõdetud raudteevoogudel. Suurema osa kaubaveost (üle 90% tkm-i) moodustab rahvusvaheline liiklus ning kodumaine liiklus Eesti avalikel raudteedel ülejäänud tkm-i. Tabel 18. Praegune kaubavedu raudteel Kaubavedu raudteel Tuhat tonni Miljonit tkm-i Rahvusvaheline 10 633 79% 1 847 91% Kodumaine 2 772 21% 176 9% Kokku 13 405 100% 2 023 100% Hindamise eesmärk on testida Tallinna-Tartu raudteeliini (LA-stsenaarium) ja kõigi raudteeliinide (HA- stsenaarium) elektrifitseerimise mõju. Arvestades suurt ebakindlust kaubanduse edasise arengu osas, tuginevad mõlema stsenaariumi hinnangud 2018. aasta voogudele. See võimaldab analüüsist kõrvaldada ebakindluse mõju kaubanduse kasvule, kuid olles siiski tundlik kulude mõju suhtes transpordiliigi osakaalule. Eeldatakse, et elektrifitseerimine vähendab asjaomaste raudteeliinide ekspluatatsioonikulusid 30% (eurot/tkm). Seejärel rakendatakse seda mõju vastavalt läbitud telje hinnangulisele vahemaale iga raudteevõrgus paikneva lähte-sihtkoha kohta. Tkm-i varieerumist hinnatakse iga lähte-sihtkoha ja kaubagrupi kaupa, kasutades elastsusi (vahemikus – 0,1% kuni –80%), mis on saadud ITF-i kaubamudelist, mida on üksikasjalikumalt kirjeldatud lisas 4.1. Järgmine tabel illustreerib kahe teoreetilise lähte-sihtkoha paari arvutusi kulude -30%-lise vähenemise mõju kohta transporditava tkm-i suurendamisel. Tabel 19. Näide raudteetranspordi kulu vähenemise mõjust kasutades teoreetiliste lähte-sihtkoha paaride elastsust Tonnkilomeetri Elektrifitseeritav lähte- Kaubagrupi Kulude tkm-i Saadav t, 2018 a lõigu kaugus sihtkoha maksumuse vähendamin suhtelise tkm kogukaugus elastsus vastava e muutuse lähte-sihtkoha % jaoks 100 100 km / 100 km –50% –30% 15% 115 100 100 km / 500 km –20% –30% 1,2% 101,2 Tabel 19Joonis 4 näitab ka seda, et mida pikem on lähte-sihtkoha vahemaa, seda väiksem on kulude vähendamise mõju antud lõigule. Raudtee elektrifitseerimise mõju transpordiliigi osakaalule Järgmises tabelis on esitatud HA- ja LA-stsenaariumide üldtulemused kaubagruppide kaupa. 187  Tabel 20. Raudtee elektrifitseerimise mõju kaubavoogudele järgmiste näitajate kaupa kaubagrupp kahe alternatiivse stsenaariumi jaoks Kaubaveomahud ja Tuhat % miljonit miljonit tkm-i suhtelise miljonit tkm-i suhtelise tonnkilomeetrid tonni, kogumahust tkm-i, HA- erinevuse % LA- erinevuse % 2018 2018 stsenaariumis stsenaariumis kaubagrupi järgi Väetised 5 378 40% 681,5 683,0 0,2% 682,1 0,1% Mineraalkütused (vedelad) 4 411 33% 736,4 750.1 1,9% 74,.2 0,7% Mineraalkütused (tahked) 1 450 11% 237,1 237,5 0,2% 237,3 0,1% Keemiatooted 1 066 8% 122,5 122,8 0,2% 122,6 0,1% Puistekaubad 313 2% 55,7 55,8 0,2% 55,7 0,1% Kiiresti riknevad kaubad, loomad, 243 2% 67,0 67,2 0,3% 67,1 0,1% köögiviljad Metallid 196 1% 44,2 44,3 0,1% 44,2 0,1% Tööstuskaubad, masinad, 175 1% 39,7 39,9 0,6% 39,8 0,3% ehitusmaterjalid jt Puit 135 1% 33,2 33,2 0,0% 33,2 0,0% Teravili 36 0% 5,5 5,5 0,3% 5,5 0,1% Kokku 13 405 100% 2 023 2 039 0,8% 2 029 0,3% Elektrifitseerimise mõju raudtee tkm-le on tagasihoidlik: + 0,8% HA-stsenaariumi ja 0,3% LA-stsenaariumi korral. Neid tulemusi tuleks siiski pidada madalateks piirhinnanguteks, kuna kasutatud elastsused on mõnevõrra madalamad kui tavaliselt. Lisaks on siin arvesse võetud ainult raudtee maksumuse elastsust (kuna raudtee sõiduaegade elastsused on veelgi väiksemad). Raudtee elektrifitseerimise mõju CO2 heitkogusele Selleks, et hinnata elektrifitseerimise mõju CO2 heitkogusele, kasutati Tabel 21 toodud järgmisi prognoose (UNECE 2012) heitekoefitsientidest tkm-i kohta. Tabel 21. CO2 heitekoefitsientide prognoosid diisel- ja elektrikaubarongidele ühe tonnkilomeetri kohta CO2 heitekoefitsient tonnkilomeetri kohta raudteel: g CO2 / tkm Maanteeväline diisel 27,1 Euroopas tarbitav elekter 13,5 Saadud CO2 heitkogus telje kohta on järgmine: Tabel 22. Saadud CO2 heitkogus raudteetelje kohta kahes alternatiivses stsenaariumis CO2 heide tonnides raudteetelje 2018 Kõrged Erinevus Erinevus kohta hinnangud ambitsioonid HA - BAU LA LA - BAU 188  Harju (juba elektrifitseeritud) 3 903 3 928 25 3 914 12 Harju maakond (elektrifitseeritavad liinid) 2 242 1 124 –1 118 1 120 –1 122 E - W (Narva) 15 873 7 991 –7 882 15 902 29 N-SE (Harju-Tartu) 17 293 8 677 –8 616 8 646 –8 647 N-SE (Tartust piirini) 11 455 5 749 –5 706 11 497 42 N-SW (Viljandi) 119 59 –60 119 0 Kokku 52 902 27 528 –25 374 41 198 –11 704 Kaubaraudteede täielik elektrifitseerimine HA stsenaariumis tooks kaasa CO2 heitkoguse vähendamise 48% ehk kokku rohkem kui 25 000 tonni CO2 aastas. Samas kui ainult Tallinn-Tartu telje elektrifitseerimine (LA- stsenaarium) tooks kaasa 22% heitkoguste vähendamise (rohkem kui kümme tuhat tonni CO2 aastas). 4.6 Poliitikareformide prioriseerimine poliitikaeesmärkide saavutamiseks Eelmistes jaotistes esitatud stsenaariumi tulemuste analüüs näitab, kuidas meetmete rakendamise erinevad tasemed mõjutavad transpordisüsteemi erineval määral. Kõiki meetmeid tuleb hinnata ja prioriseerida vastavalt soovitud poliitikaeesmärkidele. Kuigi kirjeldame neid meetmeid poliitikastsenaariumite koosseisus, Tabel25 lisas 4.2 on esitatud iga eraldi rakendatud meetme individuaalne mõju transpordiliigi osakaalule, taskukohasusele ja ligipääsetavusele. Aktiivsele liikumisele ja ühistranspordile ülemineku soodustamiseks on oluline muuta need transpordiliigid atraktiivsemaks. Sellel oleks suur kasu tervisele, samuti julgustakas tihedamat linnaplaneerimist, parendaks linnakeskkonda üldisemalt ning vähendaks CO2 heitkoguseid ja teiste saasteainete koguseid. HA- ja LA-stsenaariumi erinevus toob esile autosõidu mittesoodustamise tähtsuse linnatranspordis. Kasutaja maksustamine on peamine tegur auto kasutamise vähendamisel linnaliikluses (ilma maksustamata väheneb auto kasutamisel sõitjakilomeetrite osakaal 7%, kasutajate maksustamisel aga langeb 33%). Kui autosõitu aktiivselt ei pärsita, on aktiivseks liikumiseks tänavaruumi ümberjaotamisest ja ühistransporditeenuse parendamisest tulenevad muudatused minimaalsed. Tallinnas liiklemise ühekordse ummikumaksu ja vahemaapõhise teemaksu kombinatsioon mõjutab erinevaid transpordiviise. Ummikutasu suunab autokasutuse ümber säästvatele transpordiliikidele linnapiirkondades, kus on parem ühistranspordi teenindus ja tihedam asustus, samas kui teekasutustasu pärsib samuti pikemaid autoreise. Samal ajal on oluline arvestada kasutajate maksustamise mõju piiratud võimalustega kasutajatele, kasutades tasude diferentseerimist ja/või ristsubsideerimist erinevate kasutajagruppide vahel. Kui kliimamuutus on esmatähtis, peaksid Eesti transpordiametnikud kaaluma üleminekut keskonnasõbralikematele era- ja ühissõidukitele ning nende täituvuse optimeerimist. Nii linna- kui ka riigisisest reisijatevedu hõlmavas ITFi analüüsis moodustaks üleminek keskonnasõbralikematele sõidukitele ja nende kasutamise optimeerimine umbes poole CO2 heitkoguste kokkuhoiust võrreldes BAU- stsenaariumiga. Riigisiseses reisijateveos domineerib autokasutus. Autod moodustavad kõige ambitsioonikamas stsenaariumis endiselt vähemalt 42% rkm-st, kuigi HA-stsenaarium näitab auto kasutamisest tugevat eemaldumist reisijate linnatranspordis. Kui Eesti sõidukiparkide koosseisus olevatel sõidukitel on isegi suurte reisijakilomeetrite korral madalamad heitekoefitsiendid, on võimalik süsinikdioksiidi heitmeid sektoris oluliselt vähendada. 189 Säästikumale erapargile üleminek eeldab inimeste innustamist ostma uuemaid ja vähem saastavaid sõidukeid, samal ajal pärssides vanemate sõidukite kasutuses hoidmist. Selle saavutamiseks vajalikud poliitikareformid hõlmavad erinevaid maksurežiime ja bonus-malus programme. Investeerimine madalama heitkogusega ühistransporti aitab vähendada ka selle sektori heitkoguseid, eriti kuna nende rkm-d kasvavad muudest poliitikatest tingitud transpordiliigi vahetuse tõttu. Ühissõidukitel on oma olemuselt suurem kasutusintensiivsus ja nende kasutuselevõtt võimaldab piirkonnas madala heitkogusega sõidukite laiemat kasutuselevõttu. Edasine optimeerimine on võimalik, kui sõiduki täituvus suureneb. Autode omamise vähendamine auto ühiskasutuse ja sõidujagamisskeemide abil võib soodustada autode suuremat täituvust sõidu ajal. Ühistranspordi sõidukeid saab samuti kasutada optimaalsema mahutavusega regulaarse ülevaatuse ja sõiduplaanide optimeerimise kaudu. Raudteede täiustamine võib olla väga tõhus sõitjate arvu suurendamisel, kuid seda piirab raudteetranspordi üldine väike osakaal. Teenuse sageduse ja kiiruse parendamine mõjutab märkimisväärselt reisijate raudteetranspordi praegust osakaalu, ehkki väga madalalt algtasemelt; raudteetranspordi osakaal on endiselt väike vaatamata kahekordistumisele 2%-lt 3,5%–4%-le LA- ja HA- stsenaariumites. Elektrifitseerimisel on märkimisväärne mõju reisijate raudteetranspordi CO2 heitkoguste vähendamisel — viies mahutist sõidukisse heitkoguse sisuliselt nullini. Kuna raudtee moodustab kogu reisijateveost väikese osa, on mõju kõigi riigisiseste reisijateveoliikide põhjustatud heitkogustega võrreldes marginaalne. Teiselt poolt, raudtee täielik elektrifitseerimine tooks kaasa CO2 märkimisväärse vähenemise kaubaveos, vähenedes üle 25 000 tonni aastas. Selles aruandes esitatud modelleerimistulemused on määratletud ja piiritletud mudeli koostamise ajal kättesaadavate andmetega. Eesti ettevalmistamiseks transpordi üksikasjalikumaks modelleerimiseks, tuleks prioriseerida üleriigilise reisiuuringu läbiviimist, et paremini mõista liikumis- ja reisimustreid ja transpordivahendite eelistusi. Tulevastele modelleerimiskatsetele tuleks kasuks ka see, kui majapidamiste reisiuuringute küsimused oleksid viidud vastavusse Eesti rahvaloenduse sotsiaal-demograafiliste küsimuste määratlustega, samuti kui tsoneerimissüsteemid oleksid koordineeritud teiste ametlike andmeallikatega. ITF-le teadaolevalt tehakse hetkel pingutusi sellise uuringu läbiviimiseks lähitulevikus. 190  Kasutatud kirjandus EÜ (2018), tõlge Eesti riiklikust energia- ja kliimakavast aastani 2030 (REKK 2030), Tallinn. https://ec.europa.eu/energy/sites/ener/files/documents/ee_final_necp_main_en.pdf ITF (2019), ITF Eesti Maanteeamet (2015). Harju/Rapla majapidamiste reisiuuring Eesti Maanteeamet (2018a). Halduspiiri GIS-andmed Eesti Maanteeamet (2018b). Tallinna majapidamiste reisiuuring Eesti Maanteeamet (2020). Riiklikud GTFS-i andmed Global Petrol Prices (2020), Estonia gasoline prices, 10-February-2020, https://www.globalpetrolprices.com/Estonia/gasoline_prices/ (vaadatud 10. veebruaril 2020) IEA (2018), IEA Mobility Model (MoMo) ITF (2019), Transport Outlook 2019, OECD Publishing, Paris, https://doi.org/10.1787/transp_outlook-en- 2019-en. OpenStreetMapi kaastöötajad (2020). Maantee- ja raudteevõrgud ning põhikaardi GIS-andmed Pilet (2020), Harjumaa, https://www.pilet.ee/cgi- bin/splususer/splususer.cgi?op=list_trans&piirkond_id=3&type=E (vaadatud 8. veebruaril 2020). Samat (2020), Ticket prices on regional lines, https://www.samat.ee/en/timetables-prices (vaadatud 8. veebruaril 2020). Tallinn City Tourist Office & Convention Bureau (2020), Getting around, https://www.visittallinn.ee/eng/visitor/plan/getting-around/taxi (vaadatud 8. veebruaril 2020). UNECE (2012) CO2 information for transport services - Methodological guide, United Nations Economic Commission for Europe, https://thepep.unece.org/sites/default/files/2017- 06/Info_CO2_Methodological_Guide.pdf 191  Lisa 4.1. Strateegiliste mudelite väljatöötamine Transpordimudelid imiteerivad reaalseid liiklemisharjumusi lihtsustatud viisil. Selle poliitikaülevaate kvantitatiivse osana koostas ITF strateegilise modelleerimise komplekti, mis koosneb neljast kõrgetasemelisest sektorispetsiifilisest mudelist. Nende abil on poliitikakujundajatel võimalik katsetada poliitiliste meetmete mõju transpordinäitajatele, mis on olulised edusammude hindamiseks sellistes valdkondades nagu CO2 heitkogused, ligipääsetavus, taskukohasus ja transpordiliikide osakaal. Selles lisas antakse lühike ülevaade modelleerimise meetodist. Eesti ministeeriumile esitati metoodika üksikasjalik tehniline selgitus ja strateegilise modelleerimise vahendite kasutamise juhend. Strateegilised mudelid järgivad väljakujunenud meetodit Mudelid järgivad transpordi modelleerimisel peamiselt traditsioonilist neljaetapilist meetodit, et määrata kindlaks reisinõudlus ja lisasammuna arvutatakse ka CO2 heitkogus. Iga etapi väljundeid kasutatakse järgmise etapi sisenditena, nagu on esitatud Joonis 32. Esimene etapp on reiside genereerimine. Selle eesmärk on määrata kindlaks algavate ja lõppevate reiside arv igas tsoonis. Teises etapis, milleks on reisi jaotumine, jaotatakse reisid tsoonipaaride kõikvõimalike kombinatsioonide vahel ära viisil, mis säilitab kõik esimeses etapis kindlaks määratud lähte- ja sihtkohad, selle tulemuseks on lähtekoha-sihtkoha (ingl origin- destination ehk OD) maatriks. Kolmandas etapis, milleks on transpordiliigi valik, hinnatakse iga transpordiliigi reiside osakaalu igas lähte- ja sihtkohas. Joonis 32. Transpordi modelleerimise neljaetapiline metoodika reisinõudluse määratlemiseks ja CO2 heitkoguse arvutamiseks Nõudlusmudel hõlmab esimest kolme etappi. Neljandas etapis, milleks on reisi määramine, määratakse kindlaks iga reis, alates transpordiliigist kuni olemasolevate teede- ja ühistranspordivõrkudeni. Liiklusmudeli väljatöötamisel on vajalik lisaetapp. Liiklusmudelid on kasulikud spetsiifiliste projekti 192 kavandamisega seotud otsuste tegemiseks. Need väljuvad aga selliste strateegiliste mudelite piiridest nagu käesolev, mis võimaldab kõrgetasemeliste poliitikastsenaariumite katsetamist. Andmete kättesaadavus määrab mudeli robustsuse Andmed on mudeli väljatöötamis- ja valideerimisprotsessi keskmes. Nii mudeli üksikasjalikkuse kui ka selle kehtivuse kontrollimise jaoks on vaja piisavalt andmeid. Linnareisija mudeli puhul näitavad kaks Maanteeameti tehtud elanike liikumisviiside uuringut – Tallinna elanike liikumisviiside uuring (2015) ja Harju/Rapla uuring (2018b) – üksikisikute ilmnenud eelistusi, ühendades nende sotsiaaldemograafilised ja geograafilised omadused reisivalikutega. Vastajatelt küsitakse nende elukoha kohta, mitmeid sotsiaaldemograafilisi küsimusi, kõikide reiside lähte- ja sihtkohta teataval päeval ja kasutatud transpordiliiki. Nende andmete põhjal koostatakse algoritm, mis jäljendab otsuste tegemist mudeli siseselt. Sotsiaaldemograafilisi andmeid kasutatakse ka elanike liikumisviiside uuringu tulemuste laiendamiseks kogu piirkonna elanikkonnale. Modelleeritud piirkonna piirid piirduvad elanike liikumisviiside uuringutes hõlmatud maa-alaga. Reisi omaduste arvutamisel kasutatakse OpenStreetMap teedevõrgustiku andmeid ja üleriigilist GTFS-i andmebaasi. ITF valideeris linnamudeli, kasutades Statistikaameti pendelrände andmeid. Riiklik reisijamudel kasutab mõningaid linnamudelis kasutatud oletusi, et määrata kindlaks igas maakonnas tehtavate reiside määr või hulk ning tundlikkus teatavate reisiomaduste suhtes. Need arvutused on kohandatud riikliku transpordikontekstiga, kasutades Statistikaameti andmeid pendelrände valikute kohta. Et mõista reiside jaotumist, lisanduvad nendele mobiiltelefonidel põhinevad lähte- ja sihtkoha andmed Tartu ülikooli Mobiilsusuuringute laborist. Mudeli valideerimiseks kasutatakse raudteetranspordi ja reisijakilomeetri (rkm) andmeid ning bussi ja auto sõidukikilomeetri (skm) andmeid. Rahvusvaheline reisijamudel Rahvusvaheline reisijate modelleerimisraamistik põhineb ITF-i uuringu „Transport Outlook 2019“ jaoks maailma tasandil tehtud tööl. Viimastel aastatel on ITF-i eelmist rahvusvahelist lennundusmudelit laiendatud, et see sisaldaks ka kogu linnavälist reisijate liikuvust kõikide peamiste transpordiliikidega (välja arvatud merereisijate liikumine, nt kruiisilaevandus, mis on eeskätt meelelahutuslik, mitte tuletatud transporditegevus). Mudelis on linnadevaheline liiklus eraldatud piirkondlikust liiklusest, mida ei ole linnareisija mudelis mõõdetud. Linnadevahelist liiklust hinnatakse neljaastmelise mudelipõhise lähenemisviisi abil, kus esmalt sätestatakse reisinõudlus – reisimise tendents (erinevate reisidistantside korral), seejärel sihtkoha valik, transpordiliigi valik ja viimasena määratakse marsruut (lennunduse komponendi korral). Kõik see on välja töötatud ühtse mudeli raames, kus kõiki maismaa- ja meretranspordiliikide on võimalik kasutada lennutranspordi „varustamiseks“ ning kõikide transpordiliikide reisimise tendents on üksteisest sõltuv, võimaldades samal ajal ka ümbersuunamisi. Piirkondliku mudeli tulemused on pärit reisitegevuse genereerimise mudelist; reisinõudlus jaotatakse igas piirkonnas kättesaadavate maismaa- ja meretranspordiliikide vahel, võttes arvesse kohalikke kontekstimuutujaid (nt taristu, autode omamine). 193 Kaubaveo mudel Kaubaveo modelleerimisraamistik põhineb ITF-i uuringu „Transport Outlook 2019“ jaoks maailma tasandil tehtud tööl. Riigisisesed ja rahvusvahelised vood on kooskõlastatud riikliku tonnkilomeetri (tkm) tegevuse prognoosiga, mis on kalibreeritud riikide esitatud andmete alusel. Mõlemad on vastavusse viidud kalibreerimisprotseduuriga, mis parendab marsruudi määramist ja hindab ka rahvusvahelise kaubaveo riiklikku komponenti ja linnasisese kaubaveo osakaalu. Rahvusvaheline komponent hindab endiselt 19 kauba aktiivsust kõikide transpordiliikide ja marsruutide puhul, võttes samas arvesse erinevaid transpordi- ja majanduspoliitika meetmeid (nt uute taristuvõrgustike rajamine või kaubandustõkete leevendamine). OECD kaubandusprognoose (https://stats.oecd.org/) kasutatakse väärtuses väljendatud kaubavahetuse ümberarvestamisel kaubaveomahtudeks. ITF-i mudeli raamistik koosneb järgmistest osadest: 1. Kaubavoo jaotusmudel, 2. Väärtuse ja kaalu mudel, 3. Transpordiliigi valiku mudel, ja 4. Tasakaalustatud marsruudivaliku mudel. Et Exceli abil luua lihtsustatud mudel, eraldati mudelist järgmised elemendid: OD tunnused (aeg ja maksumus), OD voogude tähtsus kaupade ja transpordiliikide lõikes, transpordiliigi paindlikkus OD tunnuste suhtes. Mudel on valideeritud Eestis kättesaadava ja tonnkilomeetrites esitatud kaubaveotegevuse statistika alusel. ITF-i kaubaveo mudeli komponendid on järgmised:  Rahvusvahelised komponendid o Kaubanduse prognoosimudel: kasutatakse ENV-Linkages mudelit (ENV-OECD) [https://www.oecd.org/env/45334643.pdf] o Ruumiline diskretiseerimine: praegu 404 piirkonda kogu maailmas. o Kaubanduse OD maatriksi genereerimine: põhineb rastripõhistel SKT prognoosidel iga tsentroidi mõjupiirkonnas. Mudel jagab iga kauba kaubavahetuse osadeks ja võtab arvesse majanduse struktuuri iga tsentroidi (majandussektori) piirkonnas. o Väärtuse ja kaalu mudel: kaubanduslik väärtus arvestatakse ümber kaaluks, võttes arvesse iga OD paari majandusprofiili aga ka olemasolevat ühenduvust (OD paari transpordikulude log-sum näitaja). o Transpordiliigi valiku mudel: logistikaahelate parem esindatus mereteede ühendvedudel. Mudelis on kulud paremini esindatud ja transpordiliigi valimiseks on olemas asjakohane element. o Tasakaalu määramine: kõige lühema tee määramine ja piiratud mahutavusega võrguelementide (sadamate, maantee-, raudtee- ja mereühenduste) kulu ja aja ajakohastamine. Mudel sisaldab marsruudi valiku hindamise peamise elemendina marsruudi kulude prognoosi.  Riigisisene maismaa- ja meretranspordi mudel: o Nõudluse tekitamise moodul: Poissoni regressioon sotsiaalmajanduslike muutujatega o Riigisisesed maismaa- ja meretranspordi tsentroidid: katvusmudeli seadmine SKT rastri taustale o Riiklik OD maatriks: gravitatsioonivalem OD paari vaheliste voogude hindamiseks, arvestades seejuures OD paaride vahelist keskmist vahemaad ning lähtekoha ja sihtkoha vaheliste lühimate teede kulustruktuuri erinevate maismaa- ja meretranspordiliikide puhul (raudtee-, maantee- ja veeteetransport). 194  o Võrgu määramine: kulufunktsioon ajakohastas iga iteratsiooni kooskõlastatult rahvusvahelise mudeliga. Kasutajasõbralikud vahendid on prioriteetsed Kõik neli lihtsustatud modelleerimisvahendit on kasutajasõbralikud, kiired ja neid on võimalik kasutada Excelis. Kuigi Exceli-põhist vahendit on pragmaatilisem kasutada strateegilisel tasandil, põhinevad need ITF-i üksikasjalikumal modelleerimisel. Linnareisija mudeli ja riikliku reisijamudeli puhul töötas ITF kõigepealt tarkvara R abil välja detailsema mudeli, mis oli kalibreeritud suurema täpsusega. Teine Exceli- põhine koondmudel toetub mõningatele R-i väljunditele ja annab vahendi Exceli-põhises versioonis sarnased tulemused. Reiside genereerimise ja jaotumise etappide keerukus sobib R-i taolisele tarkvarale, samas kui Excel võimaldab transpordiliigi valiku etappi kasutajasõbralikult manipuleerida, mis on kasutaja käitumise muutuste uurimise alus. Rahvusvahelise kaubaveo ja reisijatemudeli puhul on rakendatud samu lihtsustamisprintsiipe: transpordiliigi valiku hinnanguid rakendatakse mudelitest saadud aja ja kulu elastsuse kaudu. 195  Lisa 4.2. Taskukohasus ja ligipääsetavuse modelleerimistulemused Linnamudeli taskukohasuse ja ligipääsetavuse tulemused reiside kaupa Reisi tulemuste keskmise aja ja maksumuse mõistmiseks on esiteks oluline aru saada, kuidas muutub keskmine reisipikkus transpordiliikide lõikes. Keskmine reisiaeg saadakse antud transpordiliigi kogu reisiaja jagamisel selle liigi reiside arvuga. Sarnaselt tuleb keskmise reisikulu arvutamiseks antud transpordiliigi kogu reisikulu jagada selle liigi reiside arvuga. Nii reisiaeg kui ka kulu sõltub reisi pikkusest. Iga OD kaugus ja nõudlus on kõigi kolme stsenaariumi puhul kindlaks määratud. Eeldatakse, et reisi jaotumine ei muutu, seega on meetmed peamiselt suunatud transpordiliigi valikule. Seetõttu on kogunõudlus (reiside arv) ja kogu läbitud vahemaa eri stsenaariumide puhul sama, muutub ainult transpordiliik. Nende tulemuste mõistmise teeb keeruliseks asjaolu, et reiside keskmine pikkus transpordiliigi kohta suureneb kõikide transpordiliikide puhul. See kõlab paradoksaalselt, kuid vaatame allpool toodud lihtsustatud teoreetilist näidet. Kujutage ette allpool toodud juhtumeid A ja B, mis kirjeldavad reisimist kolme erineva piirkonna vahel kasutades kolme erinevat transpordiliiki. Läbitud kilomeetrite koguarv (142 km) ja reiside arv (26) jääb samaks. OD paarid on samad ja nendevaheline kaugus on ka sama. Juhtumis B langeb 5 km autoreiside arv 2-lt 1-le, kuna juhtumi B ühe reisi puhul minnakse üle jalgrattale. Kuna juhtumi B puhul kaotab auto ühe oma lühematest reisidest, siis selle keskmine läbitud vahemaa reisi kohta suureneb võrreldes juhtumiga A. Juhtumi B puhul on uus 5 km jalgrattasõit pikem kui keskmine jalgrattasõit, mistõttu selle keskmine läbitud vahemaa reisi kohta suureneb. Me näeme positiivset üleminekut autolt aktiivsele transpordile, kuna ühe autoreisi kaotus on suhteliselt lühike (auto jaoks) ja suhteliselt pikk aktiivse transpordi (jalgratta) jaoks, siis näeme, et mõlema transpordiliigi puhul keskmine läbitud vahemaa suureneb. See saavutatakse kõiki transpordiliike arvesse võttes nii, et säilib kogu läbitud vahemaa, läbitud reiside arv ja keskmine reisi pikkus 5,46 km. 196  Joonis 33. Teoreetiline näide reisi keskmise pikkuse muutumise kohta transpordiliikide lõikes CASE A: CASE B: Mode Mode O-D Dist (km) Car PT Bike Total Trips O-D Dist (km) Car PT Bike Total Trips 1 to 2 1 1 1 5 7 1 to 2 1 1 1 5 7 2 to 3 5 2 8 1 11 2 to 3 5 1 8 2 11 1 to 3 10 7 1 0 8 1 to 3 10 7 1 0 8 Total Trips 10 10 6 26 Total Trips 9 10 7 26 Total distance (km) 81 51 10 142 Total distance (km) 76 51 15 142 Average distance (km) 8.10 5.10 1.67 5.46 Average distance (km) 8.44 5.10 2.14 5.46 Järgmistes punktides toimuvad muutused lähtuvad ülaltoodud näites kirjeldatud põhimõtetest. Reisipikkuse suhteline kasv BAU- ja HA- või LA-stsenaariumite vahel põhjustab vastupidiseid tulemusi. Keskmine reisiaeg suureneb aktiivsele transpordile ja ühistranspordile ülemineku tõttu Kui võrrelda allpool tabelis esitatud keskmisi reisikulusid (Tabel), siis tulemused näitavad kasvu kõikides transpordiliikides. Autoreiside kallinemine on Tabel 10. Keskmine sõidukulu kilomeetri kohta vastavalt transpordiliigile tulemusi arvestades intuitiivne. Jagatud liikuvuse ja ühistranspordi kulude suurenemine reisi kohta on tingitud reisi keskmise pikkuse suurenemisest nende transpordiliikide puhul. Aastal 2018 oli jagatud transporti kasutavate reiside keskmine pikkus 8,7 km, kuid HA-stsenaariumi puhul oli keskmine 12,6 km. Ühistranspordi reisid algavad keskmiselt 5,0 kilomeetrist, kuid HA-stsenaariumi puhul on see number 2050. aastaks keskmiselt 7,0 km. Kuigi jagatud ja ühistranspordi reisid pikenevad vastavalt 45% ja 37%, suurenevad nende keskmised reisikulud vaid 29% ja 8% tänu kilomeetrikulu kokkuhoiule. LA- stsenaariumis suureneb reisi pikkus minimaalselt, mistõttu mõju reisi kogukulule on palju väiksem. Tabel 23. Keskmine reisikulu transpordiliikide kaupa Jagatud Stsenaarium Auto liikuvus Ühistransport Jalgratas Kõndimine Kõik liigid Tavapärane - - 1,21 EUR 14,92 EUR 0,47 EUR tegevus 0,94 EUR Kõrged 3,64 (+201%) 19,31 (+29%) - - 1,79 (+91%) ambitsioonid EUR EUR 0,51 (+8%) EUR EUR Madalad 1,78 (+47%) 15,25 (+2%) - - 1,16 (+24%) ambitsioonid EUR EUR 0,48 (+1%) EUR EUR Isegi ühistranspordi tariifide korral toimub märkimisväärne üleminek ühelt transpordiliigilt teisele, mille tulemuseks on pikemad ühistranspordi reisid (võrreldes BAU-ga). Pikemad reisid koos kilomeetrikulu (tariifi) suurenemisega toovad HA- ja LA-stsenaariumite puhul kaasa vastavalt 62% ja 51% reisikulude suurenemise. Kasutusmaksu kehtestamine suurendab auto kasutamise kulusid ülemineku soodustamiseks Kui võrrelda reisiaega reiside tasemel võib kõikides transpordiliikides täheldada HA-stsenaariumi suurenemist, vaatamata Tabel 11. Keskmine sõiduaeg (min) kilomeetri kohta vastavalt transpordiliigile 197 näidatud kiiruse paranemisele. Selgitus on sama, mis reisikulude suurenemise korral. Ühelt transpordiliigilt teisele ülemineku tõttu suureneb pikemate ühistranspordi-, jalgratta- ja jalgsireiside arv ebaproportsionaalselt. Nagu varem selgitatud, siis LA-stsenaariumis on reiside lõikes üleminekuid üldiselt vähem. Ühistranspordile ülemineku puudumine tähendab, et reisi vahemaa jääb umbes samaks ja seetõttu kogu reisiaeg väheneb. Aktiivsete reiside puhul on muutused minimaalsed. Muutused autoreisi ja jagatud liikuvuse reisi aegades on märkimisväärsemad, kuna LA-stsenaarium ei takista ummikumaksude puudumisel Tallinnas toimuvaid autoreise. Tabel 24. Keskmise reisi jaoks kuluv aeg (min) transpordiliikide kaupa Jagatud Stsenaarium Auto liikuvus Ühistransport Jalgratas Kõndimine Kõik liigid Tavapärane 11,0 11,0 28,1 8,2 27,4 18,2 tegevus Kõrged 14,3 (+29%) 19 (+72%) 32,4 (+15%) 9,7 (+18%) 30,7 (+12%) 25,9 (+43%) ambitsioonid Madalad 15 (+36%) 15,1 (+37%) 25,1 (-11%) 8,3 (+1%) 27,4 (0%) 20,6 (+13%) ambitsioonid Märge: Eesti sidusrühmadega 22. aprillil 2020 peetud virtuaalses töötoas märgiti, et keskmised kõnniajad olid oodatust pikemad. ITF tugines mudeli kalibreerimisel Tallinna elanike liikumisviiside uuringu ja Harju/Rapla uuringu tulemustele. Ehkki andmeid puhastati, et eemaldada kõik reisid, mis olid pikemad kui üks tund, toimus piirkondade vahel märkimisväärne arv reise, mille tulemuseks olid ülaltoodud keskmised. Samuti on oluline märkida, et mudeli detailsuse tõttu ei ole võimalik vahet teha väga lühikeste, mõneminutiliste jalutuskäikude ja nende jalutuskäikude vahel, mille kestus on ligilähedane siin esitatud aegadele. Üksikutest meetmetest saadava kasu ühendamine võib olla suurem kui selle osade summa Allpool toodud tabel võtab kokku iga meetme individuaalse mõju, kui seda rakendatakse eraldi. Samuti on esitatud kõikide käitumise muutmise meetmete kogumõju, nagu ka kõigi meetmete täielik rakendamine. On oluline märkida, et meetmete kogumi kollektiivne mõju ei ole üksikute meetmete mõju summa. Iga poliitikameetmete kombinatsiooni tulemus erineb selle osade summast poliitikatulemuste vastastikuse mõju tõttu. Pange tähele, et aja ja kulu arvutused on esitatud kõigi transpordiliikide keskmistena ja on kaalutud reisi pikkuse järgi transpordiliigi kohta. 198  Tabel25. Transpordiliikide osakaalu, taskukohasuse, ligipääsetavuse ja CO2 heitkoguse muutus protsentides soovitatud linnapoliitika meetmete tõttu Taskukohasus Ligipääsetavu CO2 : Keskmise s: Keskmise Suhteline transpordiliigi osakaalu muutus võrreldes BAU-ga heitkoguse reisikulu reisiaja vähenemine muutus muutus Kavandatud meetmed HA LA HA LA HA LA HA LA Kõikide Kõikide Ühistrans Ühistrans Kõndimin Kõndimin Jalgratas Jalgratas CO2 heitkogus Jagatud Jagatud transpordiliiki transpordiliiki kokku Auto Auto port port de keskmine de keskmine e e Käitumise muutmise meetmed 199 Kasutusmaks – Ummikumaks -27% 64% 44% 26% 23% 0% 0% 0% 0% 0% 53% 0% 25% 0% –9% 0% Tallinnas Kasutusmaks – -10% 53% 19% 7% 5% 0% 0% 0% 0% 0% 52% 0% 12% 0% –4% 0% Teemaks Parkimistasud -3% 5% 4% 3% 3% -3% 5% 4% 3% 3% 30% 30% 2% 2% -1% -1% Tänavaruumi ümberjaotamine -3% -2% 1% 6% 7% -3% -2% 1% 6% 7% -2% -2% 3% 3% -2% -2% (Tallinnas) Tänavavälise parkimise -5% 7% 8% 5% 5% -5% 7% 8% 5% 5% -0,3% -0,3% 13% 13% -2% -2% eeskirjad (Tallinnas) Ühistranspordi -2% -2% 8% -2% -1% -2% -2% 8% -2% -1% –1,1% –1,1% -3% -3% -1% -1% parendamine Sõidukipargi ülemineku - - - - - - - - - - - - - - -29% -5% optimeerimine KOKKU (Käitumise -48% 138% 81% 42% 37% -13% 7% 20% 13% 13% 91% 24% 43% 13% –43% –10% muutmise meetmed) Kulude hüvitamise meetmed Ühistranspordi tariifi 0% 0% -1% 0% 0% 0% 0% -1% 0% 0% 5% 5% -0,2% -0,2% 0,2% 0,2% suurendamine KOKKU (Käitumise muutmise -48% 140% 79% 43% 37% -13% 8% 19% 13% 13% 100% 29% 42% 13% -48% -11% meetmed + kulude hüvitamine) Märge: Taskukohasus ja ligipääsetavus on tabelis esitatud kõikide transpordiliikide keskmisena. Need väärtused on kaalutud iga transpordiliigi läbitud reisijakilomeetrite arvu põhjal. Seega poliitikad nagu tänavaruumi ümberjaotamine, mis aeglustavad autosõitu, aga kiirendavad teisi transpordiliike, võivad kaasa tuua keskmise reisiaja väikese suurenemise, kuna enamik reisijakilomeetreid läbitakse autoga. Allolevas tabelis on kokku võetud linnadevaheliste mudelite peamised leiud iga riiklikul tasandil testitud üksiku meetme kohta ja kõigi kohta ühiselt. Tabel 26. Kokkuvõte linnadevaheliste mudelite peamistest leidudest Kavandatud meetmed kõrge Peamine reisijate tulemus Peamine kaubaveo tulemus ambitsiooniga stsenaariumi jaoks 200 Raudtee parendused Raudtee osakaalu kahekordistumine Raudtee osakaal +0,3% (2%-lt 4%-le) (-34,000 tonni CO2 aastas) Raudteede elektrifitseerimine Reisijate CO2 vähenemine -0,7% Raudteekaubaveo CO2 vähenemine - 46% (-13,000 tonni CO2 aastas) (-25,000 tonni CO2 aastas) Sõidukipargi üleminek ja Reisijate CO2 vähenemine -30% - optimeerimine (-508,000 tonni CO2 aastas) Raudtee osakaalu kahekordistumine Raudtee osakaal +0,3% (2%-lt 4%-le) Raudteekaubaveo CO2 vähenemine - Kõik meetmed koos Reisijate CO2 vähenemine -30% 46% (-544,000 tonni CO2 aastas) (-25,000 tonni CO2 aastas) 201  EELNÕU 14.09.2020 PROTOKOLLILINE OTSUS Tallinn, Toompea september 2020 „Transpordi ja liikuvuse arengukava 2021–2035“ kinnitamine Vastavalt riigieelarve seaduse § 20 lõikele 2 ja kooskõlas Vabariigi Valitsuse 19. detsembri 2019. a määrusega nr 117 „Valdkonna arengukava ja programmi koostamise, elluviimise, aruandluse, hindamise ja muutmise kord“: 1. Kinnitada „Transpordi ja liikuvuse arengukava 2021–2035“. 2. Majandus- ja Kommunikatsiooniministeeriumil avaldada punktis 1 nimetatud dokument ministeeriumi veebilehel. Jüri Ratas peaminister Taimar Peterkop riigisekretär  Transpordi ja liikuvuse arengukava 2021-2035 keskkonnamõju strateegilise hindamise aruanne Transpordi ja liikuvuse arengukava 2021-2035 keskkonnamõju strateegilise hindamise ARUANNE Tallinn 2020  Transpordi ja liikuvuse arengukava 2021-2035 keskkonnamõju strateegilise hindamise aruanne Sisukord 1. SISSEJUHATUS ............................................................................................... 3 2. KSH METOODIKA ........................................................................................... 4 3. ÜLEVAADE ARENGUKAVAST ............................................................................ 6 3.1. Valdkonna olemasoleva olukorra ja probleemide lühikirjeldus ....................... 6 3.2. Arengukava lühiülevaade ning peamiste eesmärkide iseloomustus ................. 9 3.3. Arengukava seosed muude strateegiliste planeerimisdokumentidega ........... 11 4. VASTAVUSANALÜÜS .................................................................................... 13 5. ARENGUKAVA ELLUVIIMISEGA EELDATAVALT KAASNEV KESKKONNAMÕJU – VÄLISMÕJUDE ANALÜÜS..................................................................................... 19 5.1. Mõju ressursikasutusele ja jäätmetekkele ..................................................... 20 5.2. Mõju kliimamuutustele ................................................................................ 23 5.3. Mõju õhukvaliteedile ................................................................................... 28 5.4. Mõju bioloogilisele mitmekesisusele (sh Natura 2000 võrgustikule) .............. 30 5.5. Mõju veekeskkonnale ja pinnasele ............................................................... 32 5.6. Mõju inimesele, sh sotsiaalsetele vajadustele ja varale ................................. 37 5.7. Mõju kultuuripärandile ja maastikele ........................................................... 41 6. KSH ETTEPANEKUD ARENGUKAVA TÄIENDAMISEKS, SOODSATE MÕJUDE VÕIMENDAMISEKS NING EBASOODSATE MÕJUDE LEEVENDAMISEKS ....................... 41 7. SEIRE (INDIKAATORID) ................................................................................. 44 8. ÜLEVAADE KSH KORRALDUSEST JA AVALIKKUSE KAASAMISEST ........................ 49 9. KOKKUVÕTE ................................................................................................ 51 10. LISAD ......................................................................................................... 53 Lisa 1. KSH programm koos lisadega ....................................................................... 53 Lisa 2. Ülevaade strateegilistest keskkonnaeesmärkidest ja -indikaatoritest ............ 53  3 1. Sissejuhatus Euroopa Parlamendi ja Nõukogu direktiiv 2001/42/EÜ „Teatavate kavade ja programmide keskkonnamõjude hindamine“ ning siseriiklik keskkonnamõju hindamise ja keskkonnajuhtimissüsteemi seadus (edaspidi KeHJS) kohustavad läbi viima keskkonnamõjude strateegilise hindamise strateegiliste planeerimisdokumentide (sh valdkonna arengukavade) koostamise raames. Käesolev keskkonnamõju strateegilise hindamise (edaspidi KSH) aruanne on koostatud Transpordi ja liikuvuse arengukavale 2021-2035. KSH algatati Majandus- ja Kommunikatsiooniministeeriumi 14.11.2019 käskkirjaga nr 1.1-1/19-199 Arengukava koostamine algatati Vabariigi Valitsuse 12. septembri 2019. a korraldusega nr 215 „Transpordi ja liikuvuse arengukava aastateks 2021–2035“ koostamise ettepaneku heakskiitmine.“ (Algatamisel määrati Transpordi ja liikuvuse arengukava perioodiks 2021-2030, aga KSH programmi etapis täpsustati, et kuna Eesti 2035 on koostatud järgneva 15 aasta peale, võiks ka transpordipoliitika kestlikkuse aspektist lähtuvalt käesoleva arengukava koostamisel samuti lähtuda perioodist 2021–2035. KSH programmi nõuetele vastavaks tunnistamise otsuses fikseeriti, et “Juhul kui Vabariigi Valitsus otsustab kinnitada arengukava kestvuse aastani 2035, siis KSH koostatakse arengukavale kestvusega kuni aastani 2035.”) „Transpordi ja liikuvuse arengukava 2021-2035“ (edaspidi TLAK) koostatakse, kuna praegune "Transpordi arengukava 2014-2020“ kaotab kehtivuse 2020. aastal. Erinevalt eelmisest arengukavast on Transpordi ja liikuvuse arengukaval tugevam fookus valdkondade ülesel koostööl, eriti kliimapoliitika ja energeetika eesmärkidega seoses. Arengukava põhieesmärgiks on tagada Eesti elanikele ja ettevõtetele mugavad, ohutud, kiired ja kestlikud liikumisvõimalused. Lisaks keskendutakse selles põhiliselt transpordivahendite ja -süsteemi keskkonnajalajälje vähendamisele. KSH aruanne on algselt koostatud TLAK eelnõu 22.06.2020 tööversiooni alusel ning seda täiendatakse vastavalt hilisematele ettepanekutele ja Arengukava muudatustele. KSH protsessi ja aruande ülesehitamisel on lähtutud keskkonnamõju hindamise ja keskkonnajuhtimissüsteemi seaduse (KeHJS) nõuetest, mille kohaselt peab KSH aruande koostamisel arvesse võtma olemasolevaid teadmisi ja üldtunnustatud hindamismetoodikat ning strateegilise planeerimisdokumendi sisu ja kehtestamise tasandit. TLAK on koostatud strateegilise tasandi dokumendina ja sama täpsusastet on rakendatud ka KSH puhul. Mõju hindamisel kasutati strateegilisele tasandile vastavalt pigem kvalitatiivseid meetodeid (mitte transpordiprojektides kasutatavaid enam detailseid ja kvantitatiivseid meetodeid). KSH aruanne sisaldab lühiülevaadet TLAK sisust ja koostamise eesmärkidest, seoseid teiste strateegiliste planeerimisdokumentidega ning vastavusanalüüsi selgitamaks välja kas TLAK aitab kaasa rahvusvaheliste, Euroopa Liidu ja Eesti siseriiklike poliitiliste keskkonnaeesmärkide saavutamisele. Välismõjude analüüs käsitleb Arengukava elluviimisega eeldatavalt kaasnevaid keskkonnamõjusid. KSH aruandes on esitatud ka ettepanekud Arengukava täiendamiseks ja ülevaade KSH protsessist ning avalikkuse kaasamisest. Käesoleva KSH aruande koostajateks on Stockholmi Keskkonnainstituudi Tallinna Keskus (SEI Tallinn) ja Hendrikson & Ko OÜ.  4 2. KSH metoodika Keskkonnamõju strateegilise hindamise üldine eesmärk on muuta strateegiliste otsuste ehk arengukava kvaliteeti paremaks, et tagada keskkonnakaitse kõrge tase ning säästva arengu edendamine läbi keskkonnatingimustega arvestamise juba strateegiliste planeerimisdokumentide koostamise etapis. Selleks analüüsib KSH arengukava põhimõtteid ja kavandatud tegevusi ning pakub vajadusel välja meetmeid soodsate keskkonnamõjude võimendamiseks ning ebasoodsate mõjude vältimiseks, ennetamiseks ja leevendamiseks. KSH hea tava ja praktika näeb ette KSH läbiviimist võimalikult varases strateegilise planeerimisdokumendi koostamise etapis. KSH aruanne on koostatud TLAK eelnõu 22.06.2020 tööversiooni alusel lõimituna eelnõu koostamisega ning seda täiendatakse vastavalt hilisematele ettepanekutele ja arengukava muudatustele. KSH protsessi ja aruande ülesehitamisel on lähtutud keskkonnamõju hindamise ja keskkonnajuhtimissüsteemi seaduse (KeHJS) nõuetest , 20.05.2020 nõuetele vastavaks tunnistatud KSH programmist (vt Lisa 1) ning väljakujunenud praktikast. KSH hindamisel kasutatav teemadekäsitlus, kaasnevate mõjude ja soovituslike leevendusmeetmete täpsusaste sõltub strateegilise planeerimisdokumendi ulatusest ja üldistusastmest. TLAK-i puhul on tegemist üldiseid eesmärke ja sekkumise põhimõtteid sisaldava tulevikku vaatava strateegilise arengudokumendiga. TLAK-i raames eraldi terviklikke alternatiivseid arengustsenaariumeid, sh erinevaid seatud eesmärke ega tegevussuundi ei analüüsitud. TLAK-i koostamise sisendina Rahvusvahelise Transpordifoorumi (ITF/OECD) läbi viidud analüüsi ( Arengukava Lisas 1) tulemustele tuginedes on KSH koostamisel eeldatud, et null -stsenaarium, ehk senise olukorra jätkumine ei võimalda seatud Arengukava ega keskkonnaeesmärke saavutada ja on igal juhul keskkonnale, inimese tervisele ja heaolule, varale või kultuuripärandile suurema ebasoodsa mõjuga. Sellest tulenevalt ei ole ka TLAK-i ja selle eesmärkide mitterakendamist ehk null-stsenaariumiga kaasnevaid võimalikke mõjusid eraldi hinnatud ja KSH aruandes esitatud. Arengukava ei sisalda rakenduskava ega eesmärkide saavutamiseks vajalikke meetmeid, mis kajastatakse hilisemalt koostatavas eraldi programmis või programmides. Seetõttu on ka mõju hindamisel kasutatud strateegilisele tasandile vastavalt pigem kvalitatiivseid meetodeid, mitte transpordiprojektides kasutatavaid enam detailseid ja kvantitatiivseid meetodeid. Selle käigus hinnati eelkõige alaeesmärkide ja tegevussuundade elluviimisega (kirjeldatud sekkumistest lähtuvalt) kaasnevat otsest ja kaudset mõju keskkonnale ning analüüsiti, kuivõrd kavandatavad eesmärgid aitavad kaasa keskkonnaeesmärkide saavutamisele. Hindamine toimus kahes osas: 1. Vastavusanalüüs, mille käigus hinnati Arengukavas väljatöötatud eesmärkide, sekkumiste, mõõdikute ja eeldatavate trendide vastavust ning kooskõla asjakohaste riiklike ja rahvusvaheliste keskkonnaeesmärkidega.  5 Vastavalt KeHJS §-le 40 lõige 5 tuleb hinnata; 2) strateegilise planeerimisdokumendi seost muude asjakohaste strateegiliste planeerimisdokumentidega; 5) strateegilise planeerimisdokumendi jaoks olulisi rahvusvahelisi, Euroopa Liidu või riiklikke keskkonnakaitse eesmärke ja kirjeldust, kuidas neid eesmärke ja muid keskkonnakaalutlusi on strateegilise planeerimisdokumendi koostamisel arvesse võetud. Arengukava seosed muude strateegiliste planeerimisdokumentidega on esitatud peatükis 3. Vastavusanalüüsis kasutatud keskkonnaeesmärgid ning vastavusanalüüsi tulemused on esitatud peatükis 4. Vastavusanalüüsi käigus on hinnatud, kas Arengukavas seatud eesmärgid ja mõõdikud on piisavad keskkonnakaitse eesmärkide tagamiseks. 2. Välismõjude analüüs- hinnati Arengukavas sätestatud tegevussuundade ja nende eesmärkide ning nende elluviimiseks väljatöötatud sekkumiste ga kaasnevat mõju ümbritsevale keskkonnale Välismõjude analüüs on esitatud peatükis 5, kus on käsitletud Arengukava temaatikaga seotud eeldatavaid võimalikke mõjusid keskkonna valdkondade kaupa. Lähtutud on KeHJS §-s 40 ning KSH programmis nimetatud teemadest, tuues välja asjakohasemad võimalikud välismõjud, arvestades Arengukava üldistustaset ja sisu. Alapeatükkide alguses on esitatud ka olemasoleva olukorra kirjeldus, ulatuses, mis on asjakohane Arengukava mõjude hindamiseks. Vajadusel ja võimalusel on iga teema juures välja toodud ka KSH ekspertgrupi poolsed ettepanekud ja soovitused, mis aitavad kaasa ebasoodsate välismõjude vältimisele. Vastavalt KeHJS §-s 40 on läbivalt arvesse võetud vahetut, kaudset, kumulatiivset, sünergilist, lühi- ja pikaajalise iseloomuga keskkonnamõju ning mõjude omavahelisi seoseid. Kuigi mõningal määral võivad käsitletud mõjud ulatuda ka üle riigipiiri, ei ole alust eeldada olulist piiriülest mõju KeHJS §46 (Piiriülese keskkonnamõju hindamise erisus) ning Euroopa Parlamendi ja Nõukogu direktiivi 2001/42/EÜ Artikkel 7 (Piiriülesed konsultatsioonid) tähenduses. Keskkonnamõju hindamisel lähtutakse ühtlasi eeldusest, et tegevuste elluviimisel täidetakse kõiki Eesti seadusandluses kehtestatud keskkonnanõudeid. Keskkonnamõju strateegilise hindamise läbiviimisel ja aruande koostamisel ilmnenud raskused KSH töögrupi hinnangul ei esinenud KSH läbi viimisel raskusi, mis oleks takistanud KSH eesmärgi täitmist. KSH käigus valiti asjakohased meetodid ning anti hinnangud ning soovitused, arvestades hinnatava Arengukava täpsusastet. Samas võib välja tuua, et peamine metoodiline väljakutse käesoleva KSH puhul tuleneski Arengukava kui hinnatava dokumendi väga üldisest iseloomust. Erinevatel Arengukava koostamise ja KSH protsessi osapooltel (sh avalikkusel) võib olla ootus, et KSH kirjeldab hinnatava dokumendiga kaasnevaid keskkonnamõjusid üheselt ja konkreetselt. Antud juhul on seda aga tulenevalt Arengukava üldistustasandist võimatu teha. Näiteks välismõjude analüüsi käigus sai küll käsitleda transpordisektori arengu võimalikke keskkonnamõjusid ning anda soovitusi, aga ei olnud võimalik esitada ühest hinnangut, kas ja mil määral võimalikud mõjud ka (eeldatavalt) realiseeruvad.  6 Arengukava sisaldab küll palju põhimõtteid, mille järgimisel kaasneb keskkonnale eeldatavasti pigem soodne mõju. Samas, kirjeldatud põhimõtete detailsemat kavandamist nähakse ette läbi erinevate programmide, tegevuskavade ja KOV-i koostatavate transpordi strateegiate (mis kõik ei ole osa käesolevast Arengukavast, vaid koostatakse eraldi). Seega hakkavad reaalne areng ja mõjud sõltuma pigem mitte niivõrd praeguses Arengukavas sisalduvatest positiivsetest põhimõtetest, vaid sellest milliseid valikuid tehakse järgnevates etappides ja dokumentides, mida mõjutavad suuresti ka Arengukava välised asjaolud, nagu rahaliste vahendite kättesaadavus, poliitiline tahe jms. Sellest tulenevalt esitas KSH (peatükis 6) ka mõningad üldisemad, pigem Arengukava ülesehitust ja fookust ning edaspidi koostatavaid konkreetsemaid dokumente puudutavad ettepanekud, millele tähelepanu pöörata, et suunata valdkonna arengut soodsas suunas ning vältida/leevendada transpordisektori ebasoodsaid mõjusid. Ära märkimist tasub ka asjaolu, et Arengukava koostamise protsessi raames telliti ITF/OECD käest ka valdkonda käsitlev uuring, mis sisaldas muuhulgas ka erinevate stsenaariumite modelleerimist. Käesoleva KSH aruande eelnõu koostamise ajaks (14.08.2020) ei ole modelleerimise tulemused veel valminud, mistõttu ei olnud neid võimalik kasutada sisendina ITF modelleerimise tulemusi. 3. Ülevaade Arengukavast 3.1. Valdkonna olemasoleva olukorra ja probleemide lühikirjeldus Transpordisektor mõjutab kogu ühiskonda ja elukvaliteeti ja on majanduses äärmiselt oluline. Samas kaasneb transpordiga ka oluline surve kogu ümbritsevale keskkonnale ja transpordisüsteem aitab kaasa kliimamuutustele, põhjustab õhusaastet, müra, kahju inimeste tervisele ning tarbib erinevaid loodusressursse. Transpordisektoris tekib suur osa ELi kasvuhoonegaaside heitest ning see ei ole, erinevalt paljudest teistest sektoritest, alates 1990. aastast vähenenud. Transpordisektoris tarbitakse kolmandik kogu ELi lõppenergiast, maanteetransport omakorda tekitab rohkem kui 70% transpordi kasvuhoonegaaside koguheitest. Seetõttu on transpordi kahjuliku mõju vähendamine oluliseks osaks ja eelduseks ka ELi kliimakaitse eesmärkide saavutamisel. Eesti transpordisektor on senini paraku üks saastavamaid EL-is. „Transpordi arengukava 2014-2020“ ja struktuurivahendite rakenduskava täitmise aruanded näitavad 1 , et üleeuroopalise transpordivõrgustiku taristu seisukord on tänu suurtele investeeringutele väga hea. 2019. aasta seisuga oli halvas seisus teid vaid 0,7%, 2027. aasta eesmärgi järgi võib halvas seisus teede osakaal olla 11%. Kuna paljud investeeringud on tehtud umbes 10 aastat tagasi, võib aja jooksul halvas seisus teede osakaal veidi tõusta, kuid ei ulatu siiski 11%-ni. Positiivne areng on toimunud ka rongireisijate arvus, mis ületas 2019. aastal 8,3 miljoni piiri ja võib eeldada, et 2023. aastaks seatud eesmärk jõuda 8,8 miljoni reisijani on saavutatav. 1 Allikaks on tulemusvaldkonna aruanne. Detailsed aruanded on kättesaadavad aadressil: https://www.mkm.ee/et/tegevused-eesmargid/transport  7 Ühistranspordi kasutajate, jalgsi ja jalgrattaga liikujate osakaal on Eestis jätkuvalt madal ning suure tõenäosusega ei täideta 2023. aastaks seatud eesmärki tõsta nende osakaal 50%-ni. Ühistranspordi suurimad väljakutsed on seotud hajaasutusega ning perifeersete piirkondade teeninduskvaliteedi tagamise ja tõstmisega kulutõhusa ühistranspordi korralduse ning vajaduspõhise liinivõrgu loomise abil. Eesti jalgrattaga tööl käijate osakaal on samuti väga madal, vaid ligi 2,5%, ja potentsiaal on saavutamata. Oluliseks mõjutajaks on lünklik rattateede võrgustik suuremates linnakeskustes. Transpordivõrgu arendamisel on oluliseks väljakutseks Balti jaama läbilaskevõime reisirongiliikluse tihenemisel tipptundidel. Transpordisektori keskkonnamõju on märkimisväärne ning mõjutab oluliselt nii õhku, maad kui vett kasvuhoonegaaside, energiakulu, maakasutuse, saasteainete ja müraga. Alljärgnevalt on toodud lühiülevaade keskkonnaseisundi hetkeolukorrast. Täpsem ülevaade transpordisektori poolt mõjutatavatest looduskeskkonna komponentidest ja seisundist on asjakohases mahus esitatud peatükis 5 koos vastava teema välismõjude hindamisega. Perioodil 1966-2010 oli kliima soojenemine Eestis eriti intensiivne, kümnendi kohta on temperatuur keskmiselt tõusnud 0,2-0,3 °C2. Sademete hulk on aastas 20. sajandi teisest poolest kasvanud 5-15% ning nende hulk ületab aurustumise peaaegu kahekordselt, mida tuleb arvestada taristu ja ühenduste kavandamisel. Suurenenud on ka lääne- ja edelatuule osakaal talvel. Kliima soojenemist kiirendavad peale looduslike põhjuste peamiselt kasvuhoonegaasid, mis kaasnevad kütuste põletamisega, must süsinik ja loomapidamisel eralduv kasvuhoonegaas metaan. Eesti on elaniku kohta arvestatuna kasvuhoonegaaside heitkoguste poolest teisel kohal Euroopas, kogumahus moodustavad heitkogused 0,4% Euroopa Liidu liikmesriikide kasvuhoonegaasidest. Riigi kasvuhoonegaaside heitkogused peavad EL transpordipoliitika valges raamatus kokku lepitud taseme saavutamiseks 2030. aastaks vähenema 13% võrreldes 2005. aasta tasemega3. 2018. aasta seisuga oli riik vähendanud jagatud kohustuse määrusega kaetud sektorites kasvuhoonegaaside heitkoguseid 0,4% võrreldes 2005. aasta tasemega.4 Vaatamata eelmises Transpordi arengukavas seatud eesmärgile aeglustada negatiivsete keskkonnamõjude kasvu transpordisektoris ületas kasvuhoonegaaside kogus juba 2018. aastal 2020. aastaks seatud määra5. Transpordi valdkond on energeetika ja tööstuse kõrval üks peamiseid välisõhu saastajaid. Transpordi valdkonnas eralduvatest saasteainetest on suurima osakaaluga võrreldes summaarse riigisisese heitega NOx, LOÜ ja PM2.5, kõige vähem mõjutab transpordi valdkond SO2 ja NH3 saastetasemeid välisõhus. Õhusaaste on kõige olulisem keskkonnaga seotud enneaegsete surmade põhjus ELis, mille ohvrite arv on kümme korda suurem kui liiklusõnnetuste puhul. Välisõhus avaldavad kõige olulisemat tervisemõju peened osakesed (PM10) ja eriti peened osakesed (PM2,5)10 . Eesti õhusaaste on Euroopa linnade madalaim ning välisõhu pidevseire andmetel on õhk puhas ja enamik probleeme lokaalse iseloomuga6. Vaatamata sellele põhjustab 2 Eesti seitsmes kliimaaruanne 2017 3 Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis https://www.riigikantselei.ee/sites/default/files/content- editors/Failid/SA_eesti/ulevaade_uro_tegevuskava_2030_elluviimisest_eestis_juuni2020.pdf 4 Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis 5 Allikaks on tulemusvaldkonna aruanne. Detailsed aruanded on kättesaadavad aadressil: https://www.mkm.ee/et/tegevused-eesmargid/transport 6 ENMAK 2030 KSH aruanne  8 õhusaaste ka Eestis olulisi sotsiaalmajanduslikke väliskulusid peamiselt läbi kaotatud inimelude aastate. Inimeste tervist mõjutab ka transpordi põhjustatav müra. Liiklusmürast mõjutatud inimeste arv oli 2018. aastal 300 831 ning on võrreldes eelmiste aastatega langustrendis 7 . Liiklusmüra tervisemõju kohta Eestis täpsed hinnangud puuduvad, kuid nt elas üle 55 dB müratsoonides 2017. aastal Strateegiliste mürakaartide andmetel Tallinnas 57% elanikkonnast ja Tartus 51% elanikkonnast.8.9 „Transpordi arengukava 2014-2020“ eesmärgiks oli viia kolme aasta liikluses hukkunute arv alla 50-ne. Antud eesmärki ei saavutatud, kolme aasta liikluses hukkunute arv oli keskmisena 62. Transpordisektoril on märgatav mõju ressursikasutusele läbi transpordiinfrastruktuuri ehitamise, transpordivahendite tootmise ja maakasutuse transpordi infrastruktuuri tarbeks, samuti läbi fossiilsete kütuste tarbimise. Lisaks on taastumatute ressursside kasutus omakorda tihedalt seotud jäätmetekkega. Hinnanguliselt oli perioodil 2010 – 2020 kaevandatavast aastasest ehitusmaavaramahust üle poole koguhulgast seotud riigi poolse teedetaristu ehituse ja hooldusega. „Transpordi arengukavas 2014-2020“ seati eesmärgiks taastuvenergial sõitvate ja ökonoomsemate sõidukite osakaalu tõstmine vähendamaks sektori energiatarvet ja fossiilsete kütuste tarbimist. Lisaks oli eesmärgiks, et Eestis on peamiseks alternatiivseks kütuseks kodumaisest biomassist ja jäätmetest toodetud biometaan/surugaas. 2020. aastaks on ökonoomsemate sõidukite osakaal uutest sõiduautodest kasvanud, samuti on jõustunud vedelkütustesse biokomponendi segamiskohustus. Samas ei ole alternatiivkütust tarbivate sõidukite hulk märkimisväärselt kasvanud. Teede hooldusega kaasnev negatiivne mõju veekogude seisundile, teedevõrgu planeerimisega kaasnevad üleujutused ja maanteekraavide hooldamine on kõik keskkonda kahjustavad. Veekogusid võivad ohustada ka näiteks umbrohu tõrjeks kasutatavad kemikaalid, talvine teede soolamine, naastrehvidest pärinevad raskemetallid, mis võivad jõuda veekeskkonda.10 Eesti heas seisundis olevate veekogude osakaal on püsinud 2016. ja 2017. aastal samal tasemel. Eesti rannikuveekogudest on valdav enamik kesises seisundis ning heas või väga heas seisundis pole ühtegi. Lisaks on hinnatud halvaks veesamba elupaigad, mereökosüsteem ja toiduvõrgud. Põhilisteks surveteguriteks on võõrliigid, kalade ülepüük, eutrofeerumine, saasteained ja mereprügi. Eesti transpordist tulenev hajukoormus ehk koormus, mis avaldub mitmesuguste ainete lekke või keskkonda sattumise tõttu mistahes transpordiga seotud infrastruktuuride kasutamise tõttu on Eesti veekeskkonnale hetkel vähetähtis 11 . Läänemere laevatatavuse intensiivsuse tõttu on jätkuvalt vaja tagada mere- ja rannikureostuse korje võime hoidmine vähemalt praegusel tasemel. Transport mõjutab elusloodust eeskätt levikuteede mõjutamise, elupaikade killustumise ja võõrliikide leviku kaudu. Eesti loodus on väga mitmekesine, mitmesuguste elupaikade rohkus loob 7 Lisa 1.3 Transpordi ja liikuvuse arengukava 2021 -2030 koostamise ettepanek 8 ENMAK 2030 KSH aruanne 9 ENMAK 2030 KSH aruanne 10 Lisa 1.3 Transpordi ja liikuvuse arengukava 2021 -2030 koostamise ettepanek 11 Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis  9 eeldused suureks liigirikkuseks, mille soodsa seisundi tagamiseks on Eesti territooriumist 19,4% maismaast ja 27% merealast võetud kaitse alla ja loodud on Natura 2000 kaitsealade võrgustik. Soodsas seisundis on 57% Natura elupaigatüüpidest ja 56% liikidest. Umbes 51% maismaast on kaetud metsadega, millest omakorda kaitsealuseid metsasid on pea 40%. 3.2. Arengukava lühiülevaade ning peamiste eesmärkide iseloomustus „Transpordi ja liikuvuse arengukava aastateks 2021-2035“ on laiapindne transpordipoliitikat kujundav dokument, mis on „Transpordi arengukava aastateks 2014-2020“ jätkudokument. Arengukava töötatakse välja Vabariigi Valitsuse 13. detsembri 2005. a määruse nr 302 „Strateegiliste arengukavade liigid ning nende koostamise, täiendamise, elluviimise, hindamise ja aruandluse kord” kohaselt. Arengukava katab riigi eelarvestrateegia tulemusvaldkonda „Transport“ ning panustab kaudselt ka „Siseturvalisus“, „Infoühiskond“, „Keskkond“, „Energeetika“ ja „Teadus- arendustegevus ja ettevõtlus“ tulemusvaldkonna arengudokumentidesse ja nende eesmärkide täitmisesse. TLAK hakkab meretranspordi osas asendama ka senist „Eesti Merenduspoliitikat 2012-2020“ (laevanduse, sadamate ja logistika ning veeteede arengu osas). Transpordisüsteem koosneb taristust, transpordivahenditest, veoteenusest, inimestest, kes liiguvad, ja kaupadest, mida liigutatakse, ning sellega seotud teenustest, infost, regulatsioonist ja organisatsioonidest. Transpordipoliitika tegeleb kõikide nende elementidega ning kitsaskohtadega, mille parendamisega Arengukava rakendamise raames tegeleda, leidub kõigis neis elementides. Peamine väljakutse transpordi ja liikuvuse planeerimisel on inimeste ja kaupade liikuvuse efektiivsem, kuid sealjuures kasutajate jaoks mugavam korraldamine. Kiiresti muutuvas keskkonnas ei vasta enam vananenud transpordi korraldamise süsteemid järgmise 10 aasta perspektiivis tegelikule nõudlusele ja pole efektiivsed. Seetõttu otsib Arengukava lahendusi järgnevaks viieteistkümneks ja kolmekümneks aastaks, kuidas erinevaid kliimaeesmärke pikaajaliselt saavutada. Tulenevalt Eesti turu väiksusest, millest tingituna on ka transpordi- ja logistikaturg väike ning suurt mastaapi eeldavate teenuste pakkumine keeruline, on muu maailmaga ühendus riigis äärmiselt oluline. Väikeriigina on aga tähtis keskenduda investeeringutele, mille sotsiaalmajanduslik tasuvus on suurim. Lisaks tuleb transpordi planeerimisel arvestada hõredalt ja ebaühtlaselt paikneva rahvastikuga, mis võib olla ühtaegu nii võimalus kui piirang ning ka rahvastiku vananemisega. Arengukava elluviimisel soovitakse vähendada transpordisektori kasvuhoonegaase, suunates kaubavood maanteelt keskkonnahoidlikele alternatiividele, s.o. raudteele ja merele. Reisijateveos soovitakse näha ühistranspordi kasutamise ja aktiivsete liikumisviiside (käimine, jalgrattasõit jms) ning mikromobiilsuse (nt elektritõukerattad, monorattad) kasvu sõiduautode ja neile rajatud ruumi arvelt. Lisaks peab transpordisüsteem olema ohutu ja nutikas. Arengukavas keskendutakse transpordi digitaliseerimisele, paremale liikuvuskeskkonnale, sundliikumiste vähendamisele, ajalise distantsi vähenemisele tõmbekeskuste vahel, ohutusele, kvaliteetse ja kestliku taristu arendamisele ja korrashoiule ning transpordist põhjustatud keskkonnasaaste vähendamisele. Arengukavas on esitatud läbivad eesmärgid ja põhimõtted kõigile transpordiliikidele ning täpsemad alaeesmärgid ja tegevused transpordiliikide ja taristu kaupa nende eesmärkide saavutamiseks.  10 Arengukava üldeesmärgiks on tagada Eesti elanikele ja ettevõtetele mugavad, ohutud, kiired ja kestlikud liikumisvõimalused. Oluliseks tulemusnäitajaks seejuures on tulenevalt Euroopa Liidu kliimaeesmärkidele vähendada transpordisektori kasvuhoonegaase 23-38 protsenti aastaks 2035 võrreldes 2018. aastaga. Arengukava üldeesmärgid ning põhimõtted vastavalt peatükile 3 on: CO2e heite vähendamise poliitika, mis keskendub transpordivahendite keskkonnajalajälje vähendamisele läbi mh aktsiisi- ja maksupoliitika ning madala süsinikusisaldusega kütuste kasutuselevõtu toetamisele; Kaubaveos eelisarendatakse mere- ja raudteevedu ning kujundatakse ökonoomset kaubavedu võimaldavat multimodaalset taristut; Transporditaristut kavandatakse selliselt, et avalik ruum ja teenused oleksid kõikidele inimestele olenemata vanusest ja füüsilistest eripäradest ligipääsetavad; Liikuvusteenuste kujundamisel pakkuda sobivat, vajadustest lähtuvalt teenust; Nutikas ja andmetel põhinev taristu planeerimine; Jagatud liikuvuse edendamine; Riigi jaoks on oluline fookus targa liikuvuse12 kompetentsi kasvatamine; Riigisektor näitab keskkonnasäästliku käitumisega transpordi korraldamisel ja erinevate transpordiliikide kasutamisel eeskuju nii äri- kui ka erasektorile; Taristuinvesteeringute planeerimisel arvestatakse riigikaitsealaste nõuetega. Alljärgnevalt on esitatud kokkuvõte Arengukavas seatud eesmärkidest koos detailsemate tegevussuundadega transpordiliikide kaupa lähtuvalt Arengukava ülesehitusest (peatükid 5 ja 6). Hästi ühendatud Eesti. Konkurentsivõimeline transport ja taristu Transpordisüsteemi säästev, nutikas ja kulutõhus arendamine, vähendades keskkonna jalajälge ning muutes taristul liiklemise ohutumaks. Transpordi taristu arendamise põhimõtted, mis kehtivad kõikidele transpordiliikidele, on: Lähtume Eesti transpordisüsteemi arendamisel terviklike (transpordi)koridoride loogikast ja eri transpordiliikide vahelisest mugavast ühilduvusest. Arendame transpordisüsteemi säästvalt Transpordisüsteemi arendamisel ja investeerimisotsuste langetamisel järgitakse Rootsi ja Soome transpordiametite eeskujul nn 4-astme printsiipi. Arendame teedetaristut kulutõhusalt Vähendame transporditaristu ökoloogilist jalajälge ja kohaneme kliimamuutustega Alternatiivkütuste taristu Ohutu ja toimiv transpordisüsteem Transporditaristu toimimine erandlikes olukordades. Taristu tagab ettevõtluse konkurentsivõime Nutikas transpordisüsteem Keskkonnasäästlik liikuvus linnas ja linnakeskkond Arengukava alaeesmärgiks on ühendatud liikuvuse arendamine linnades, sh hulgas aktiivsete liikumisviiside arendamisse ning lahendustesse rohkem panustamine, mis tõstavad säästlike 12 Osana niinimetatud targa linna valdkondadest. Vt rohkem: https://www.etis.ee/File/DownloadPublic/a0058268 -a17d-47cd-b387-ef84c11a33ea?name=p352- Soe.pdf&type=application%2Fpdf  11 liikumisviiside kasutust autokasutajate arvelt. Linnalise liiklusruumi säästliku liikumise jaoks sobivaks kujundamine, sh rattateede ning kergrööbastranspordi ja multimodaalsete sõlmpunkte ehitamine, et suurendada säästvate liikumisviiside osakaalu. Ühistranspordi nullheitele viimine, et vähendada transpordi keskkonna jalajälge. Ohutud teed Liiklemine muudetakse mugavamaks, aegruumilisi vahemaid vähendatakse ja liiklemise ohutuse tõstmiseks arendatakse põhimaanteid lähtudes liiklusohutusest ja nõudlusest. Eraldi tegevusena on toodud kolmes põhisuunas (Tallinna-Tartu, Tallinna-Narva, Tallinna-Pärnu) nutikate ja ohutute maanteede välja ehitamine. Raudteel säästlikult, ohutult ja kiirelt Aegruumiliste vahemaade ja CO2e emissioonide vähendamiseks elektrifitseeritakse 1520 mm raudteelõike ning tõstetakse linnadevahelisi kiiruseid ja parandatakse ohutust, kasvatamaks raudteetaristu kasutust. Reisi- kui ka kaubaliiklust suunatakse maanteelt raudteele, hangitakse uusi elektrironge ning luuakse uus raudteeühendus Balti riikide ning Lõuna- ja Lääne-Euroopaga. Mereriik Eesti, innovatiivne ja keskkonnahoidlik meretransport Alaeesmärgiks on merendussektori konkurentsivõimelisemaks, keskkonnasõbralikumaks ja ohutumaks muutmine ning selle ühendamine muu taristuga. Suurendada tuleb merendusega seotud ettevõtete loodavat innovatsiooni ja lisandväärtust ning luua täiendavaid võimalusi kaldaäärse (väike)ettevõtlus- ja elukeskkonna atraktiivsuse tõstmiseks. Eesti linnulennult. (Otse)lendudega ühendatud Eesti Lennutranspordi arendamine aitab kaasa Eesti majanduskasvule, töökohtade loomisesse, kaubandusse ja liikuvusse, milleks on vajalik lennukauba mahtude tõstmine ja transiitreisijate arvu suurendamine. Lennutransport on inimeste vajadusi arvestav, mugav, ligipääsetav, hästi ühendatud, keskkonnasõbralik, ohutu ja turvaline. Majanduse konkurentsivõime tagamiseks tuleb Eestit hoida ühendatuna, arendada lennundussektori uusi ärisuundasid ja digitaliseerida õhutransporti. Liikuvus kui teenus. Üleriigiline, ühendatud ühistransport. Vähendamaks inimeste sõltuvust isikliku sõiduauto kasutamisest tuleb tagada efektiivselt ja kvaliteetselt korraldatud ühistransport läbi parema planeerimise ning nutika piletimüügikorralduse. Teenused tuleb viia inimestele lähemale ja toetada innovatiivsete teenuste ning lahenduste loomist. 3.3. Arengukava seosed muude strateegiliste planeerimisdokumentidega TLAKis esitatud info kohaselt on Arengukava koostamise käigus arvestatud seoseid ja eesmärkide kooskõla riigi strateegiliste arengudokumentidega vastavalt Arengukava koostamise ettepaneku hetkel kehtinud sõnastusele, sealhulgas horisontaalsetest arengustrateegiatest tulenevate riigi  12 säästva arengu ja konkurentsivõime eesmärkidega on arvestatud Arengukava koostamise käigus. Samuti on arvestatud ka transpordipoliitikaga seotud riigi strateegiliste arengueesmärkidega. Täpsem ülevaade seotud strateegilistest dokumentidest ja seostest on esitatud KSH programmis ning nende sisu ei ole KSH aruandes dubleeritud. Arengukava koostamisel arvestatud siseriiklikud ja rahvusvahelised strateegilised dokumendid:13 Kliimapoliitika põhialused aastani 2050[1] Muudame maailma: säästva arengu tegevuskava aastaks 2030[2] Eesti julgeolekupoliitika alused[3] Eesti spordipoliitika põhialused aastani 2030[4] Kultuuripoliitika põhialused aastani 2020[5] Eesti Euroopa Liidu poliitika[6] Eesti merenduspoliitika 2012–2020[7] Eesti 2035+ strateegia[8]. Energiamajanduse arengukava aastani 2030[9] Kliimamuutustega kohanemise arengukava aastani 2030[10] Põllumajanduse ja kalanduse valdkonna arengukava aastani 2030[11] Üleriigiline planeering „Eesti 2030“[12] Maakonnaplaneeringud 2030+ Eesti keskkonnastrateegia aastani 2030[13] Riiklik turismi arengukava 2014-2020[14] Eesti infoühiskonna arengukava 2020[15] Eesti ettevõtluse kasvustrateegia 2020[16] Looduskaitse arengukava aastani 2020[17] Eesti metsanduse arengukava aastani 2020[18] 13 [1] https://www. envi r . ee/si tes/defaul t/fi l es/kpp _2050. pdf [2] https://www. r i i gi kantsel ei . ee/si tes/defaul t/f i l es/content -edi tor s/Fai l i d/SA_eesti / saa stva_ar engu_tegevuskava_2030_ur o_et. pdf [3] https://www. r i i gi teataja. ee/akti l i sa/306 0/62 01/70 02/ 395XI I I _RK_o_L i sa. pdf# [4] https://www. r i i gi teataja. ee/akt/32 0022 015 0 02 [5] https://www. kul . ee/si tes /kul m i nn/fi l es/kul tuur 2020. pdf [6] https://www. r i i gi kantsel ei . ee/et/val i tsuse -to etam i ne/eur oopa -l i i t/eesti -eur oopa-l ii du-pol i i tika -ja-sel l e -eesm ar gi d [7] https://www. m km . ee/si tes/defaul t/fi l es/m er enduspol i i ti ka. pdf [8] https://www. r i i gi kantsel ei . ee/et/E esti 2035 [9] https://www. m km . ee/si tes/defaul t/fi l es/enm ak_2030. pdf , l k 13 [10] https:/ /www. envi r . ee/si tes/defaul t/fi l es/kl i i m am uutustega_ kohanem i se_ar engukava_aastani _2030_0. pdf [11] https:/ /www. agr i . ee/et/pol l um ajanduse - ja-kal anduse -val dkonna -ar engukava -aa stani -203 0 [12] https:/ /www. r ahandusm i ni steer i um . ee/si tes/defaul t/fi l es/Ruum i l i ne_pl aneeri m i ne/eesti 2030. pdf [13] https:/ /www. r i i gi tea taja. ee/akti l i sa/0000/1 279/3 848 /127 938 82. pdf# [14] https:/ /www. r i i gi teataja. ee/akti l i sa/3191/1 201/3 015 /l i sa. pdf [15] https:/ /www. m km . ee/si tes/defaul t/fi l es/el fi nder /ar ti cl e_fi l es/eesti _i nfouhi skonna_ar engukav a. pdf [16] https:/ /kasvu str ateegi a. m km . ee/ [17] https:/ /www. envi r . ee/si tes/defaul t/fi l es/l ak_l op_0. pdf [18] https:/ /www. r i i gi teataja. ee/akti l i sa/3180/2 201/1 003 /E esti _%20m etsanduse_ar engukava. pd f [19] https:/ /www. sm . ee/si tes/defaul t/fi l es/cont ent -edi tor s/eesm ar gi d_ja_tegevused/Ter vi s/201 2_r ta_pohi tekst_ok_5. pdf [20] https:/ /www. si sem i ni steer i um . ee/si tes/defaul t/fi l es/dokum endi d/Ar engukavad/si setur val i s use_ar engukava_2015 - 2020_k odul ehel e. pdf [21] http s://www. r ahandu sm i ni steer i um .ee/si tes/defaul t/fi l es/docum ent_fi l es/RE G O/eesti _r egionaal ar engu_str ateegi a_2020_tai endatud_ 2 018. pdf [22] https:/ /www. r i i gi kantsel ei . ee/si tes/defaul t/fi l es/content -edi tor s/Fai l i d/saa stev_eesti _21. p df [23] https:/ /www. envi r . ee/et/eesm ar gi d -tegevused/val i sohukai t se/ohus aasteai nete -vahendam i s e -pr ogr amm [24] https:/ /www. r i i gi kantsel ei . ee/si tes/defaul t/fi l es/content -edi tor s/Fai l i d/eesti 20 20/ee2 020_ 2019 -2 020_3 0. 05. 20 19. pdf [25] https:/ /www. hm . ee/si tes/defaul t/fi l es/str a teegi a2020. pdf [26] http://eur -l ex. eur opa. eu/L exUr i Ser v/L exUr iSer v. do?ur i =COM:2009: 024 8:FI N:E T :HTML [27] https:/ /www. envi r . ee/et/eesm ar gi d -tegevused/m er ekeskkonna -kai tse/m er estr ateegi a [28] https:/ /www. m km . ee/si tes/defaul t/fi l es/aval i ke_teenuste_kor r al dam i se_r oheli ne_r aam at. pdf  13 Rahvastiku tervise arengukava 2009–2020[19] Siseturvalisuse arengukavaga 2015-2020[20]. Regionaalarengu strateegia 2014-2020[21] Eesti säästva arengu riiklik strateegia „Säästev Eesti 21“[22] „Teatavate õhusaasteainete heitkoguste vähendamise riiklik programm aastateks 2020-2030“[23] Konkurentsivõime kava „Eesti 2020“[24] Eesti elukestva õppe strateegia 2020[25] Euroopa Liidu Läänemere piirkonna strateegia[26] Eesti merestrateegia[27] Avalike teenuste korraldamise roheline raamat[28] KSH hinnangul toetavad TLAKis toodud strateegilised eesmärgid ning tegevussuundade põhimõtted üldjuhul eelpoolmainitud dokumentides toodud strateegiliste eesmärkide saavutamist. Välja toodud arvesse võetavate arengukavade hulgas on mitmeid, mis lõppevad 2020. aastaga ja neis sisalduvad eesmärgid võivad olla ka moraalselt vananenud, ent uute arengukavade koostamist pole veel alustatud või on see käimas. 2019. aastal korrastas valitsus ka kogu riigi strateegilise planeerimise süsteemi ning arvukate arengukavade asemel suunatakse Eesti elu 17 valdkonna arengukava kaudu, mis tähendab edaspidi mitmete erineva tasemega strateegiliste dokumentide lõimimist tervikuks ning valdkondlike katusstrateegiate koostamist. Ent see protsess on alles töös ja sellest tulenevalt ei ole mitmetes valdkondades võimalik ajakohasemaid eesmärke aluseks võtta. Arengukava dokument ei sisalda täpsustavat ülevaadet Arengukava koostamise ja jõustumise hetkel kehtivatest arvesse võetud strateegilistest dokumentidest, mistõttu ei ole selge, kuivõrd on protsessi käigus jälgitud ka paralleelselt koostamisel olevate seotud valdkondade arengukavadega ning Arengukava koostamise perioodil jõustunud EL tasandi strateegiliste dokumentidega. → Tagamaks Arengukava ajakohasus, soovitab KSH Arengukavas vastavad täpsustused kajastada. 4. Vastavusanalüüs Vastavusanalüüsi läbi viimise eesmärgiks on välja selgitada, kas TLAKis sõnastatud eesmärgid, tegevussuunad ja mõõdikud toetavad või ei toeta erinevate rahvusvaheliste, Euroopa Liidu ja Eesti siseriiklike keskkonnaeesmärkide saavutamist. Arengukava eesmärkide ja põhimõtete vastavusanalüüsi puhul on läbi viidud võrdlus sama üldistustasemega teiste, kõnealuse valdkonna või sellega seotud asjakohaste strateegiliste arengudokumentide keskkonnaeesmärkidega. Kuna paljud analüüsitud dokumentides toodud keskkonnaeesmärgid sisuliselt korduvad, koostati vastavusanalüüsi läbi viimiseks komplekt 6 sisult erineva keskkonnaeesmärgiga, koos toetavate alaeesmärkidega. Vastavusanalüüsi käigus analüüsiti järgmisi rahvusvahelisi ja Euroopa Liidu taseme strateegilisi dokumente ning nendes sätestatud asjakohaseid eesmärke (põhjalikum ülevaade valitud keskkonnaeesmärkide seostest analüüsitud strateegiliste dokumentidega on toodud Lisas 2): ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030 Euroopa roheline kokkulepe Vastupidava energialiidu ja tulevikku suunatud kliimamuutuste poliitika raamstrateegia  14 EL säästva arengu strateegia (2006) Euroopa 2020. aasta strateegia juhtalgatus „Ressursitõhus Euroopa” Euroopa Parlamendi ja nõukogu direktiiv 2006/32/EÜ, mis käsitleb energia lõpptarbimise tõhusust ja energia-teenuseid (Energiatõhususe direktiiv) Euroopa Parlamendi ja nõukogu otsus nr 406/2009/EÜ, milles käsitletakse liikmesriikide tegevusi, et täita ühenduse kohustust vähendada kasvuhoonegaaside heitkoguseid aastaks 2020 (Effort Sharing Decision) Euroopa Parlamendi ja nõukogu määrus (EÜ) nr 443/2009, millega kehtestatakse uute sõiduautode heitenormid väikesõidukite süsinikdioksiidiheite vähendamist käsitleva ühenduse tervikliku lähenemisviisi raames Euroopa Parlamendi ja nõukogu direktiiv nr. 2009/28/EÜ taastuvatest energiaallikatest toodetud energia kasutamise edendamise kohta (Taastuvenergia direktiiv) Euroopa Komisjoni valge raamat „Euroopa ühtse transpordipiirkonna tegevuskava – Konkurentsivõimelise ja ressursitõhusa transpordisüsteemi suunas“ (2011) Euroopa Liidu säästva arengu strateegia Euroopa Liidu bioloogilise mitmekesisuse strateegi aastani 2020 Euroopa Liidu Läänemere piirkonna strateegia Veepoliitika raamdirektiiv (Euroopa Parlamendi ja nõukogu direktiiv 2000/60/EÜ, 23.oktoober 2000) Linnalise liikuvuse pakett Euroopa vähese heitega liikuvuse strateegia 631, 17. aprill 2019, millega kehtestatakse uute sõiduautode ja uute väikeste tarbesõidukite CO2-heite normid ning millega tunnistatakse kehtetuks määrused (EÜ) nr 443/2009 ja (EL) nr 510/2011 Konkurentsivõimeline vähese CO2-heitega majandus aastaks 2050 Euroopa puhta õhu pakett (2016) ELi elurikkuse strateegia aastani 2030 Euroopa Parlamendi ja nõukogu direktiiv 2002/49/EÜ, 25. juuni 2002, mis on seotud keskkonnamüra hindamise ja kontrollimisega Euroopa Parlamendi ja nõukogu direktiiv (EL) 2016/2284, 14. detsember 2016, mis käsitleb teatavate õhusaasteainete riiklike heitkoguste vähendamist, millega muudetakse direktiivi 2003/35/EÜ ning tunnistatakse kehtetuks direktiiv 2001/81/EÜ (EMPs kohaldatav tekst) EUROSTAT indikaatorid ning järgmisi Eesti strateegilisi alusdokumente ja nendes sätestatud asjakohaseid eesmärke: Eesti säästva arengu riiklik strateegia aastani 2030 „Säästev Eesti 21“ Konkurentsivõime kava „Eesti 2020“ Eesti keskkonnastrateegia aastani 2030 Kliimapoliitika põhialused aastani 2050 Kliimamuutustega kohanemise arengukava aastani 2030 Eesti merestrateegia Looduskaitse arengukava aastani 2020 Üleriigiline planeering „Eesti 2030+“ Eesti taastuvenergia tegevuskava 2020 Eesti Merenduspoliitika 2012–2020 Riigi eelarvestrateegia 2013-2016 Energiamajanduse arengukava aastani 2030 Riigi eelarvestrateegia 2020-2023 Eesti 2035+ strateegia Eesti riiklik energia- ja kliimakava aastani 2030 Alternatiivkütuste taristu tegevuskava 2017  15 Maapõuepoliitika põhialused aastani 2050 Veeseadus Mereala seireprogramm 2021 – 2026 Teatavate õhusaasteainete heitkoguste vähendamise riiklik programm aastateks. 2020–2030 Atmosfääriõhu kaitse seadus Kokkuvõte vastavusanalüüsi tulemustest: Tabelis 1 ja detailsemalt Lisas 2 esitatud vastavusanalüüsist selgub, et Arengukava sisaldab hulgaliselt positiivseid eesmärke ning põhimõtteid, mis on suunatud transpordi nõudluse ja autokasutuse vähenemisele ning säästlikumaks muutmisele, samuti ühistranspordi ja aktiivsete liikumisviiside edendamisele (detailselt loetletud KSH peatükis 3.2). Valdav osa eelpool nimetatud põhimõtetest aitavad otseselt või kaudselt kaasa seatud keskkonnaeesmärkide ja alaeesmärkide saavutamisele. Positiivse mõjuga on lisaks kohustus tagada kooskõla Arengukava eesmärkide ja põhimõtetega kohaliku tasandi investeeringute kavandamisel ja meetmete väljatöötamisel strateegilise dokumendi olemasolu (linnades säästva liikuvuse arengukavade14 olemasolu). Korduste vältimiseks ei ole seda infot enam allpool esitatud vastavusanalüüsi tulemuste all käsitletud. Alljärgnevas vastavusanalüüsi tabelis (Tabel 1) on esitatud ainult tegevused ja põhimõtted, mis on suunatud selgelt konkreetse keskkonnaeesmärgi saavutamisele ning vastuolud, millele TLAK eelnõu täiendamisel ja elluviimisel tuleks KSH hinnangul tähelepanu pöörata. Täpsemad seosed vastavusanalüüsis seatud eesmärkide, juba kasutatavate indikaatorite ning eesmärkide täitmist toetavate või mitte toetavate TLAK põhimõtete ja eesmärkide kohta on toodud Lisas 2. Osaliselt ka vastavusanalüüsi käigus tuvastatud eesmärkide ülesed ja Arengukava ülesehitust käsitlevad soovitused ja ettepanekud, mis võivad mõjutada Arengukava ellu viimisel eesmärkide saavutamist, on esitatud peatükis 6. Arengukavas sisalduvad põhimõtted on pigem suunda näitavad ja ei sisalda konkreetseid meetmeid soovitud olukorra saavutamiseks, sh autotranspordi piiramiseks. Samas on Arengukavas toodud konkreetseid eesmärke maanteeliikluse mugavuse (alaeesmärk 5.2. Ohutud teed) ja kaubavedude mahu suurendamiseks (alaeesmärgid 5.3 – 5.5). Seetõttu jääb oht, et ühistranspordi tingimuste paranemise kõrval suureneb endiselt ka autokasutus ja seeläbi nii kasvuhoonegaaside kui saasteainete heide ning transpordisektori energiakulu. Lisaks ei ole täpsustatud erinevate tegevuste ja põhimõtete omavahelist prioriteetsust, millest lähtuda omavaheliste vastuolude tekkimisel: näiteks autoliiklusele suunatud taristuprojektide puhul üheaegselt keskkonnasäästlikkuse, ühenduskiiruse kasvu ja ohutuse tõstmise eesmärgi saavutamine. Seetõttu ei ole võimalik KSH käigus hinnata Arengukavas käsitletud põhimõtete ja tegevuste piisavuse määra keskkonnaeesmärkide saavutamisel. 14 Sh rattastrateegiad jmt.  16 Tabel 1 Arengukavaga kavandatu vastavus keskkonnaeesmärkidele (KSH jaoks sõnastatud) Alaeesmärk Arengukava eesmärgid ja põhimõtted, mis aitavad strateegiline või ei aita tagada strateegilise keskkonnaeesmärgi keskkonnaeesmärk täitmist 1. Vähendada 1.1 Transpordisektori Eesmärgi täitmine on tagatud, kui meetmete välja transpordisektori mõju kasvuhoonegaaside heite töötamisel järgitakse Arengukavas toodud kliimamuutusele konkurentsivõimeline põhimõtteid ja tegevusi prioritiseerides vähendamine esmajärjekorras keskkonnahoidu ning CO2e heite vähendamise poliitikat ning valitakse nõudluse suunamise ja ohutuse meetmed vastavalt sellele. → KSH soovitab Arengukava ellu viimise sekkumiste valikul prioritiseerida esmajärjekorras keskkonnahoidu ning CO2e heite vähendamise poliitikat ning valida nõudluse suunamise ja ohutuse meetmed vastavalt sellele. Vt lisaks ptk 6. 1.2 Vähendada Eesmärgi täitmiseks Arengukavas otseseid sundliikumiste vajadust rakendatavaid meetmeid kavandatud ei ole. Sundliikumiste vähendamist toetavad tegevused ja põhimõtted, mis on suunatud erinevate teenuste paremale kättesaadavusele eeskätt läbi maakasutuse kompaktse ja mitmekesise planeerimise ning sihtkohtade inimestele lähemale toomise. Viimast on võimalik hästi saavutada ka läbi paremate liikumisvõimaluste ja aegruumiliste vahemaade vähendamise kaudu. Seega aitavad sundliikumiste vähendamisele kaasa Arengukavas toodud transporditaristu parema planeerimise põhimõtted. 1.3 Saavutada Otseselt eesmärgi täitmiseks on Arengukavas ette tasakaalustatud nihe nähtud eesmärk 6. Liikuvus kui teenus. Üleriigiline, keskkonnahoidlike ühendatud ühistransport ja alaeesmärk 5.1 transpordiliikide suunas Keskkonnasäästlik liikuvus linnas ja linnakeskkond. Eesmärgi saavutamiseks on oluline aktiivne nõudluse suunamine nii majanduslike meetmetega, taristuarendusega kui andmete pakkumise ja teenuste arendamisega riigi tasandil. Eeltoodud tegevustest on majanduslikke meetmeid KSH hinnangul Arengukavas käsitletud pealiskaudselt ning seotult valdavalt aktsiisipoliitikaga. Suunavaid ja positiivset käitumist toetavaid meetmeid ei ole üldse käsitletud. → KSH soovitab Arengukavas kaaluda erinevate modaalset nihet soodustavate majanduslike meetmete käsitlemist laiemalt (nii positiivset käitumist premeerivad kui negatiivset maksustavad, eri liikumisviise hõlmavad). 1.4 Vähendada Arengukava tegevustest on energiakasutuse transpordisektori energiatarvet piiramisele kõige selgemalt suunatud CO2e heite vähendamise 15 poliitika, mere- ja raudteevedude eelisarendamine koos multimodaalsust võimaldava taristu rajamisega ning keskkonnasõbralikele transpordivahenditele ülemineku soodustamine. Samas on Arengukavas sisalduvad põhimõtted pigem suunda näitavad ja ei sisalda konkreetseid 15 Jagatud kohustuse otsuse alusel, 406/2009/EÜ.  17 meetmeid soovitud olukorra, sh autotranspordi piiramiseks, samas sisaldab Arengukava konkreetseid eesmärke maanteeliikluse mugavuse suurendamiseks (eeskätt alaeesmärk 5.2. Ohutud teed). Seega jääb oht, et ühistranspordi tingimuste paranemise kõrval suureneb endiselt ka autokasutus ning transpordisektori energiakulu. → KSH soovitab maanteetranspordi ja selle taristu planeerimisel lähtuda esmajärjekorras 4-astme printsiibist ja nõudluse suunamisest ning valida maanteeliikluse mugavuse ja ohutuse tagamiseks vajalikud meetmed sellest lähtuvalt. Vt lisaks ptk 6. 1.5 Tõsta taastuvenergia Eesmärgi täitmiseks sisaldab Arengukava osakaalu transpordisektori põhimõtteid keskkonnasõbralikule veeremile energia lõpptarbimises üleminekuks ning vajaliku toetava taristu rajamiseks. Arengukavas sisaldub sihteesmärk, et aastaks 2035 on taastuvenergia osakaal transpordisektoris 22,7%. Eesmärk on väga ambitsioonikas, kuna muudes arengudokumentides, eelkõige REKK kohaselt, on aastaks 2030 eesmärgiks 14%. Samas ei selgu Arengukavast täpsemalt, milliseid alternatiivseid energiaallikaid keskkonnasäästlike kütustena käsitletakse. Konkreetseid tegevused taastuvenergia kasutuse osakaalu tõstmiseks nähakse ette „Eesti riiklik energia- ja kliimakavas aastani 2030 (REKK 2030)” ja „Alternatiivkütuste taristu tegevuskavas 2017”. → KSH soovitab Arengukavas viidata ka seotud strateegilistes dokumentides toodud transpordi valdkonnaga seotud eesmärkidele ja tegevustele, mis on suunatud taastuvenergia osakaalu suurendamisele ning seirata vastavat arengut ka TLAK raames.. 2. Vähendada Õhusaaste vähendamisega seotud eesmärke on transpordiga seotud Arengukavas käsitletud kaudselt läbi CO2e heite õhusaastet, eriti linnades vähendamise poliitika ja transpordivahendite keskkonnajalajälje vähendamise. Samas näeb Arengukava siiski ette liikumiste hulga kasvu (sh autoliikluse kasvu), mistõttu ei pruugi olla tagatud saasteheitmete vähendamine, kuna puuduvad transpordisektorist põhjustatud õhusaaste vähendamisele suunatud selged meetmed. Konkreetseid tegevused nähakse ette „Teatavate õhusaasteainete heitkoguste vähendamise riiklik programmis aastateks 2020-2030“. →KSH soovitab Arengukavas viidata seotud strateegilistes dokumentides toodud transpordi valdkonnaga seotud eesmärkidele ja tegevustele ning seirata vastavat arengut ka TLAK raames.  18 3. Kasutada Arengukava tegevuspõhimõtetest toetavad transporditaristu loodusressursside säästlikku kasutust enim uuendamisel põhimõtted transpordisüsteemi säästvalt loodusressursse arendamiseks ning transporditaristu ökoloogilise säästlikult jalajälje vähendamiseks, mille juures tuuakse välja eesmärk materjalide taaskasutuseks taristuehituses. → KSH soovitab Arengukavas seada eesmärgiks ka taastumatute loodusressursside võimalikult suure lisandväärtusega kasutamise ja ringmajanduse põhimõtetest lähtuva taristuehituse. 4. Vähendada Arengukava tegevuspõhimõtetes otseseid viiteid transpordisektori mõju bioloogilise mitmekesisuse säilitamisele ei ole. bioloogilisele Samas näeb Arengukava ette nii liikumiste hulga mitmekesisusele kasvu (sh autoliikluse kasvu) kui täiendavate taristuobjektide arendamist ning rajamist, mistõttu ebasoodsate arengute korral ei pruugi olla tagatud suurte rohevõrgustikku struktuuride terviklikkus ja toimivus. → KSH soovitab Arengukavas viidata transporditaristu arendamisel suurte rohevõrgustikku struktuuride terviklikkuse ja toimivuse tagamise vajadusele ning Natura 2000 võrgustiku aladele ebasoodsa mõju vältimise põhimõttele. 5. Vähendada 5.1 Vähendada koormust Kaudselt toetavad kõik tegevused eesmärgi transpordisektori, sh pinna- ja põhjaveele täitmist, mille üheks lähtekohaks on taristu mõju keskkonnahoid. Selgemalt on veekeskkonna kaitset veekeskkonnale Arengukavas käsitletud ainult seoses merendusega. Merekeskkonna kaitse eesmärkide saavutamiseks 5.2 Tagada vajalikud meetmed on lisaks Arengukavale kirjeldatud täpsemalt Merenduspoliitika laiendatud keskkonnaohutu mereliiklus visioonis ning need aitavad kaasa keskkonnaeesmärgi täitmisele. → KSH soovitab viidata Arengukavas ka pinna- ja põhjavett säästvate taristuehituse põhimõtete rakendamisele ja -hoolduspraktikate kasutamisele. 6. Leevendada 6.1 Leevendada Transpordimüra leviku piiramisele aitavad osaliselt transpordisektori mõju transpordiga seotud müra mõju kaasa kõik Arengukavas sisalduvad tegevused ja inimese tervisele põhimõtted, mis on suunatud transpordi nõudluse vähendamisele. Kuna valdav osa transpordimürast pärineb autoliiklusest, siis aitavad eesmärgi suunas liikumisele kaasa ka tegevused ja põhimõtted, mis on suunatud transpordinõudluse ja autokasutuse vähenemisele ning säästlikumaks muutmisele. Uute liikuvusteenuste lisandumisel pööratakse tähelepanu ka, et linnaruumi ei tekiks juurde liigset müra. 6.2 Vähendada õhusaaste Vt eesmärk 2 kahjulikku mõju 6.3 Vähendada liikluses Otseselt eesmärgi täitmiseks on Arengukavas tegevussuund 5.2 Ohutud teed ning üldpõhimõte (kõikide transpordiliikide lõikes) Ohutu ja toimiv transpordisüsteem. Arengukava näeb ette liiklusohutuse tõstmist nii modaalsuse  19 hukkunute ja raskelt vigastatute muutuste, taristuehituse põhimõtete kui teiste tegevuste kaudu. Linnakeskkonnas toetab ohutust arvu ka linnaliikluse rahustamine tänavaruumi kujundamisega. 5. Arengukava elluviimisega eeldatavalt kaasnev keskkonnamõju – välismõjude analüüs Vastavalt eelnõule on Arengukava peamiseks fookuseks transpordivahendite ja -süsteemi keskkonnajalajälje vähendamine ehk kasvuhoone- jm heitgaaside vähendamise poliitika. Seda arvestades kirjeldab Arengukava suurel hulgal üldisi põhimõtteid, mida järgides on potentsiaalselt võimalik vähendada transpordisüsteemi ebasoodsat välismõju. Arengukavas kirjeldatud põhimõtete detailsemat kavandamist nähakse ette läbi erinevate programmide, tegevuskavade ja KOV-i koostatavate transpordi strateegiate (mis kõik ei ole osa käesolevast Arengukavast, vaid koostatakse eraldi). Arengukavas kirjeldatud keskkonnamõjude vähendamiseks kavandatud põhimõtted/tegevused on suunatud ennekõike CO2 heite vähendamisele autotranspordist, kuid aitavad otseselt kaasa ka õhusaaste ning mürataseme vähendamisele, sh linnalises keskkonnas, kus need on ennekõike probleemiks. Proportsionaalselt oluliselt vähem on pööratud tähelepanu meretranspordi ja õhutranspordi keskkonnamõjudele, mis on ka mõneti mõistetav, arvestades et enam kui 98% transpordisektori CO2 heitest, aga suur osa õhusaasteainetest pärineb just maanteetranspordist (sh linnaline liikumine). Meretranspordi ja õhutranspordi arendamisel on Arengukava fookus suunatud teenuse kvaliteedi parandamisele - kaubamahtude ja otseühenduste suurendamise ning ohutusele. Arengukavas nimetatud põhimõtted ja tegevused, mis aitavad kaasa autotranspordi energiamahukuse, CO2 heite ja õhusaasteainete vähendamiseks on üldjoontes samad, millest lähtuvalt on koostatud „Energiamajanduse arengukava 2030“ (edaspidi: ENMAK 2030) ja mille rakendamist näeb ette ka „Teatavate õhusaasteainete heitkoguste vähendamise programm 2020- 2030“ (edaspidi: ÕVP). Nimetatud dokumentides kavandatud meetmete kulutõhusust on hinnatud uuringus „Uuring kulutõhusaimate meetmete leidmiseks kliimapoliitika ja jagatud kohustuste määruse eesmärkide saavutamiseks“ 16 . Meetmete välismõjusid, aga ka vastavust muudele strateegilistele dokumentidele on hinnatud ülal nimetatud arengukava ja programmi KSH-des. Lisaks on 2019. a valminud uuring, „Eesti Kliimaambitsiooni tõstmise võimaluste analüüs“, kus on modelleeritud mh olulisemate transpordisektorile suunatud meetmete võime vähendada CO2 heidet ning hinnatud meetmete rakendamisega kaasnevaid välismõjusid ja riske, sh toodud meetme rakendamise mahud, mis on vajalikud kliimaneutraalsuse saavutamiseks. Tulenevalt eeldatavasti ennekõike Arengukava üldistusastmest on Arengukavast välja jäänud mõned eelpoolnimetatud dokumentides nimetatud konkreetsemad tegevused (näiteks ökonoomse juhtimise edendamine ja sõidukite rehve ja aerodünaamikat puudutav). Eelnevalt nimetatud dokumentidest enam on Arengukavas pööratud tähelepanu probleemide 16 https://www.envir.ee/sites/default/files/news-related-files/aruanne_kliimapoliitika_kulutohusus.pdf  20 komplekssele/tervikule lahendamisele (KOV-idele seatakse kohustus transpordivaldkonna strateegilise dokumendi koostamiseks; rakendada tuleb terviklikku transpordiliikide ülest transpordikoridoride loogikat; luuakse transpordiliikide ja maakondade ülene ja pandlik piletisüsteem; infrastruktuuri investeeringute kavandamisel tuleb lähtuda 4-astmelisest otsustamise printsiibist; Liikuvusameti loomine; andmetaristu loomine, innovatsiooni arengu soodustamine jmt). Kompleksse lähenemise olulisust keskkonna-eesmärkide saavutamist silmas pidades on rõhutatud ka ÕVP-s. Eelnevat arvesse võttes, sh arvestades ka läbi viidud mõjuhindamisi, võib öelda, et Arengukava rakendamisega kaasnevad välismõjud keskkonnale on tervikuna eeldatavalt pigem soodsad. Siiski sisaldavad alljärgnevates peatükkides esitatud hinnangud endas suurel hulgal määramatust, kuna Arengukava esitab vaid üldiseid põhimõtteid ning konkreetsete meetmete kavandamine jääb väljapoole Arengukava ulatust. Välismõjude (sh soodsate mõjude) avaldumine sõltub paljuski järgnevates etappides ellu viimiseks valitavate meetmete rakendamise ulatusest ja komplekssusest/terviklikkusest, mis omakorda on tihedalt seotud finantsiliste vahendite olemasoluga, aga ka tehnoloogia arenguga. Alljärgnevates peatükkides on käsitletud Arengukava elluviimisega seotud eeldatavaid välismõjusid keskkonnavaldkondade kaupa. Valdkondade määratlemisel on lähtutud KeHJS §-s 40 ning KSH programmis nimetatud teemadest. Mõju hinnangud on antud lähtuvad Arengukava sisust ja üldistustasemest. Analüüsi fookuse ja hinnangute paremaks mõistmiseks on alapeatükkide alguses esitatud sissejuhatusena olemasoleva olukorra kirjeldus ja valdkondlikud trendid hindamiseks vajalikus ulatuses. Vajadusel ja võimalusel on iga teema juures välja toodud ka KSH ekspertgrupi poolsed ettepanekud ja soovitused, mis aitavad kaasa ebasoodsate välismõjude vältimisele või positiivsete mõjude võimendamisele. Valdkondade ülesed ja pigem Arengukava ülesehitust käsitlevad soovitused ja ettepanekud, mis võivad mõjutada Arengukava ellu viimisel eesmärkide saavutamist, on esitatud täiendavalt peatükis Ptk 6. 5.1. Mõju ressursikasutusele ja jäätmetekkele Transpordisektor mõjutab ressursikasutust mitmeti – läbi fossiilsete kütuste tarbimise, transpordiinfrastruktuuri ehitamise, transpordivahendite tootmise ning läbi maakasutuse transpordi infrastruktuuri tarbeks. Fossiilkütuste kui taastumatu ressursi tarbimine transpordis oleneb peamiselt transpordinõudlusest, liikumisviisist ja kaubaveo liigist, sõidukite energiatarbest ning kasutatavatest energiaallikatest. Eesti transpordisektor sõltub endiselt peaaegu täielikult fossiilsetest kütustest ja on Euroopa üks energiamahukamaid. Transpordisektor moodustab ca 24 % energia lõpptarbimisest17. Taastuvenergia osakaal transpordisektoris oli 2018 aastal vaid 2,2% brutotarbimisest, siiski peetakse 2020 sihttaseme (10%) saavutamist võimalikuks, võttes arvesse olemasolevaid meetmeid (biometaani tootmise toetamine, biometaani liinikilomeetri toetus ja biometaani tanklate rajamise toetust) ning biokomponendi segamise kohustust, mis hakkas kehtima 2018. aasta 1. maist ja suureneb igal aastal kuni 2020. aastani. Oma osa energia tarbimise 17 Eesti kliimaambitsiooni tõstmise võimaluste analüüs. SEI, 2019.  21 vähenemisse ja taastuvenergia osakaalu suurenemisse annavad ka elektrit tarbivad ja hübriidsõidukid, mille elektritarbimine arvestatakse taastuvenergia kasutuse juurde 18 . Ühistranspordi kasutajate, jalgsi ja jalgrattaga liikujate osakaal on endiselt väikses languses võrreldes eelnevate aastatega. Tööl käimiseks kasutas 2018. aastal ühistransporti, käis jala või sõitis rattaga vaid 37,8% inimestest (eesmärk 50%), seejuures rattaga käis tööl vaid 1-2%. Positiivses trendis on rongi kasutajate arv 19 ning toimub rongide järk-järguline üle viimine elektrienergiale – elektrifitseeritud on raudtee Harjumaal ning Tallinn-Narva suund kuni Aegviiduni. Tagatud on elektritoide ka Ten-T sadamates ja rahvusvahelisi lende teenindavates lennujaamades. Toimub mandri ja Muhu vahel liikuvate laevade üleviimine elektrienergiale. Arengukava seab eesmärgiks hoida transpordisektori energiakulu (33 500 TJ) ja katta 22,7% (kordajatega)20 energiavajadusest taastuvenergia abil. Arengukavas leiavad ära nimetamist valdav osa erinevates uuringutes ja mudelites toodud meetmeid sektori energiamahukuse vähendamiseks. Seda arvestades saab öelda, et Arengukava mõju sektori energiamahukusele ja fossiilsete kütuste tarbimisele on soodne, küsimus on pigem selles, kas Arengukavas toodud üldised põhimõtted on eesmärkide saavutamiseks piisavad, kuidas ja millises mahus toimub põhimõtete rakendamine praktikasse ning kas Arengukava soodsat mõju on võimalik suurendada. Põhimõtted ja tegevused, mis aitavad kaasa CO2 heite vähendamisele, panustavad ühtlasi ressursikasutuse vähendamisse. Arengukavas on transpordisektori keskkonnamõjude vähendamist silmas pidades fookuses CO2 heite vähendamine. Seda arvestades ja kordamise vältimiseks on ülevaade Arengukavas esitatud põhimõtetest/tegevustest, millest saadav kasum ja CO2 heite vähendamiseks, aga ka ressursimahukuse vähendamiseks, esitatud ptk 5.2. osana (Mõju kliimamuutustele). Alljärgnevalt on hinnatud Arengukava mõju ressursikasutusele ja jäätmetekkele (jättes kõrvale fossiilkütuste teema, mida on käsitletud järgmises peatükis) . Transpordi infrastruktuuri ressursimahukus Transporditaristu rajamiseks ja rekonstrueerimiseks kulub suurel hulgal taastumatuid loodusvarasid ja pinnast. Arengukavas, „Ehitusmaavarade kasutamise riikliku arengukava 2011- 2020“, toodud hinnangu 21 kohaselt kasutatakse Eestis suurem osa ehitusmaavaradest täitematerjalina, sellest omakorda 71% tee-ehituses ja 29% betooni valmistamiseks. „Maapõuepoliitika põhialused aastani 2050“, uue ehitusmaavarade riikliku arengukava koostamist teadaolevalt ei kavandata. Poliitilise dokumendi kohaselt tagatakse maapõueressursside kasutamine ringmajanduse põhimõtetest lähtuvalt võimalikult suure lisandväärtusega ning minimaalsete kadude ja jäätmetega. Jäätmearuandlusele 22 tuginedes suurenes asfaldijäätmete (kood 17 03 02) teke perioodil 2014 - 2018 peaaegu viiekordselt, samas on taaskasutus ületanud viimastel aastatel tekke ning kasutusele on võetud varasemalt vaheladustatud koguseid, mis võrreldes 2014. aastaga on vähenenud peaaegu kaheksakordselt. 18 Alternatiivkütuste taristu strateegia. 2017 19 Transpordiarengukava 2010-2020 täitmise aruande (2019) 20 Elektromobiilsus X 4 ja raudtee transpordis kasutatav elekter 1,5 X, kus arvutustes võetakse arvesse kahe aasta tagune taastuvelektrienergia osakaal; taastuvenergia direktiivi lisa 9 osa A välja toodud toormetest toodetud biokütused arvestatakse kahekordselt) 21 Eesti Ehitusmaterjalide Tootjate Liidu andmetel 22 Jäätmekäitluse trendid 2014-2018. Keskkonnaagentuur.  22 Lisaks on taaskasutusse suunatud imporditud koguseid (40 000 t Hollandist sisse toodud asfaldijäätmeid). 23 Võrreldes 2008. a on vähenenud ka kaevandatud paekivist tekkivate paekivikillustiku tootmisjääkide teke, mis oli 2008. a 30% ja jäi 2017. a alla 10%. Arengukava kohaselt tuleb taristut kavandada säästvalt - taristu arendamise eelduseks on põhjuste ja soovitavate eesmärkide analüüs. St transpordisüsteemi arendamisel ja investeerimisotsuste langetamisel tuleb järgida 4-astmelist printsiipi, mille kohaselt võib hakata kaaluma uue taristu ehitamist kui alternatiivi alles siis, kui kolmes esimeses astmes kavandatud tegevused ei lahenda probleemi. Seejuures tuleb linnadevaheliste ühenduste arendamisel maanteearendusi vaadata koos raudteeühendusega. Samal ajal näeb Arengukava maksumuse prognoos ette 2,2 mld eraldamist linnadevaheliste aeg-ruumiliste vahemaade vähendamiseks ja liiklusohutuse tõstmiseks kolmes põhi suunas, mis eelarvest lähtudes ning arvestades seniseid suundumusi tahetakse tõenäoliselt suunata maanteede ehitamiseks 2+2 sõidurealiseks. Seejuures ei ole selgitatud, kuivõrd on antud tegevuste ette nägemisel arvestatud 4-astme printsiibiga. Arengukava maksumuse prognoosis toodu mõju ressursikasutusele on arvestatav. → KSH teeb ettepaneku riiklike investeeringute ja suurprojektide kavandamisel ja edasisel arendamisel lähtuda Arengukavas toodud põhimõtetest, sh tagada, et uue taristu kavandamisel 4-astme printsiipi ka reaalselt rakendatakse. Sarnase nõude seab Arengukava kohalikele omavalitsustele – kohaliku tasandi investeeringute kavandamisel ja meetmete väljatöötamisel on kohustus tagada kooskõla Arengukava eesmärkide ja põhimõtetega. KOV-idel on investeeringutoetuste saamise eelduseks strateegilise dokumendi olemasolu, kust nähtub kuidas perspektiivne investeering panustab säästva transpordi, ohutusalaste ja konkurentsivõime kasvatamise, regionaalsete vajaduste, hea ruumiplaneerimise korralduse vm eesmärgi saavutamisse. Taristuobjekti planeerimisel tuleb arvesse võtta projekti/objekti ja kasutajate kogukulu selle eluea vältel (ehituskulud, hoolduskulud, liikuvusega seotud kogukulud) ning taristu jalajälg välja arvutada, valikus seda arvestada ning taristu kavandamisel lähtuda saastaja maksab põhimõttest. → Arvestades nõuete mitmekesisust, millega KOV-i koostatav strateegiline dokument peab arvestama, soovitab KSH kaaluda detailsema juhise välja töötamist strateegilise dokumendi koostamiseks, et erinevate omavalitsuste kavades ja projektides toodu oleks võrreldav. Arengukava mõju jäätmetekkele jääb hinnanguliselt pigem väikseks, suureneb nii jäätmeteke kui taaskasutus, mida näitab ka viimaste aastate jäätmekäitluse statistika. Seejuures leiab transpordisektoris eeldatavasti taaskasutust ka arvestatav osa põlevkivituhast. Transpordivahendite tootmise ressursimahukus Arengukava käsitleb otseselt transpordivahendite tootmise ja selle ressursimahukusega seonduvat, kuid rõhutab selgelt kergliikluse, ühistranspordi, sh raudteetranspordi prioriteetsust. Kergliikluse ja ühistranspordi eelisarendamine ei vähenda küll automaatselt vajadust autode 23 Jäätmekäitluse trendid 2014-2018. Keskkonnaagentuur . https://jats.keskkonnainfo.ee/failid/Jaatmekaitluse_trendid_2014-2018.pdf  23 järele, kuid loob eeldused autode kasutuse vähenemiseks, mis omakorda loob ringmajanduse põhimõtetest lähtudes eeldused selleks, et pikeneb autode eluiga ja väheneb masinatööstuse ressursimahukus. Autode eluea pikenemisele aitab eeldatavasti kaasa üldised jõupingutused ringmajanduse arengusse, sh surve autode vastupidavuse suurendamiseks ja üksikute detailide vahetuse võimaldamiseks. Samas võib seoses tehnoloogia arenguga suureneda oluliselt teatud ressursside kasutus, näiteks vajadus liitiumi järele seoses elektriautode kasutuse suurenemisega. Infrastruktuuri alune maa kui ressurss Transpordisektor vajab olulises mahus maad kui ressurssi, mille turuväärtus sõltub ennekõike piirkonnast, kuhu infrastruktuur rajatakse. Linnalises keskkonnas võib maa hinnast olulisemaks osutuda maa olemasolu (vaba maa nappus), kuhu vajalikku infrastruktuuri kavandada. Rahalisest väärtusest olulisem võib olla maa väärtus elupaigana, ökosüsteemina. Infrastruktuuri rajamisel tuleb vältida olulist mõju elurikkusele (vaata täpsemalt ptk 5.4). TLAK ei kavanda otseselt uut varem planeerimata suuremahulise maantee- või raudtee infrastruktuuri rajamist. Küll toob nii põhimaanteede laienemine kolmes põhi suunas (Tallinn – Tartu, Tallinn – Narva, Tallinn – Pärnu) kui uue kergliiklustaristu ja ühistranspordi infrastruktuuri (sh multimodaalsed sõlmpunktid) rajamine kaasa surve maakasutusele. Infrastruktuuri aluseks maaks kui ressursiks võib tinglikult lugeda ka merepõhja, mida süvendatakse või kuhu toimub kaadamine mereteede ja sadamate rajamise/arendamise//hooldamise eesmärgil. Arengukava näeb vajaduspõhiselt ette lainemurdjate, kaitsemuulide rajamist ning rõhutab vajadust tagada veeteede piisav laius ja sügavus. Eesmärgiks seatakse ka väikesadamate areng. Viimati nimetatud tegevuste mõju maa kui ressursi kasutusele ei ole Arengukava üldistusastmes siiski oluline. 5.2. Mõju kliimamuutustele Transpordivahendites kütuste põletamisel tekivad nn kasvuhoonegaasid (CO2, N2O ja CH4), mis õhku paiskumisel aitavad kaasa globaalsele kliima soojenemisele. Peamine kasvuhoonegaas (edaspidi: KHG) Eestis on CO2, mis moodustas 2018. a 88,7% summaarsest koguheitest. Kliima soojenemise võimalikeks tagajärgedeks on muuhulgas äärmuslike ilmastikuolude sagenemine, üleujutusriski suurenemine ning ebasoodsad mõjud inimeste tervisele ja varale. Aastaks 2041 on prognoositud sademete hulga suurenemist sõltuvalt stsenaariumist 10% või 14% ja aastaks 2100 16% või 19%. Oluliselt väiksemaks jääb prognooside kohaselt lumikattega päevade arv. Valdav osa kasvuhoonegaaside koguheitest tekib energeetikasektoris kütuste põletamisel. 2018. a moodustasid energeetikasektorist, sh transpordist, tulenevad kasvuhoonegaaside heitkogused 88,1 % kogu Eesti kasvuhoonegaaside (edaspidi: KHG) heitest. Transpordisektor on energeetika- ja soojatootmise järel suuruselt teine KHG allikas, moodustades 2018. aastal 13,7% energeetikasektori KHG heitkogustest ja 12% kogu Eesti heitest. Valdav osa (98,03 % 2018. a) transpordisektori KHG heitest tekib maanteetranspordist. 2018. a tekkis maanteetranspordist 2333,16 kt CO2, raudteetranspordist 24,72 kt CO2 ekv ja kodumaises navigeerimises 15,50 kt CO2 ekv. CO2 tekkis transpordisektoris kokku 2 404,7 kt ekv, CH4 0,14 kt  24 ekv ja N20 0,08 kt ekv. 24 Transpordisektori KHG heide sõltub peamiselt transpordinõudlusest, liikumisviisist, kaubaveo liigist, sõidukite energiatarbest ja kasutatavast energiaallikast. CO2 koguheide on transpordisüsteemi säästlikkuse üks n-ö võtmenäitajatest, mis viitab kogu transpordisüsteemi säästlikkusele, energiatõhususele, fossiilkütustest sõltuvusele ning teiste välisõhu saasteainete heitkogustele. Eurostati andmeil on Eesti transpordisektori KHG kogused elaniku kohta Euroopa keskmisest pea kaks korda suuremad. Kui ELi keskmine on 8,7 tonni CO2 ekvivalenti inimese kohta, siis Eestis on see näitaja 15. Energeetikasektorist pärinevad CO2 heitkogused varieeruvad peamiselt tulenevalt arengutest majanduses, energiavarustuse struktuurist ja ilmastikutingimustest. Võrreldes 1990. aastaga on KHG heitkogused transpordisektoris vähenenud 2018. aastaks 2,6% ja võrreldes 2017. aastaga 0,9%. (2018. aasta vähenemine võrreldes eelneva aastaga tuleneb eelkõige vähenenud diiselkütuse kasutusest raudtee transpordis) CO2 heide maanteetranspordist kui peamisest transpordisektori KHG heite allikast on võrreldes 1990. aastaga aga 2018. aastaks kasvanud ligi 4 %, seejuures on pidev kasvamine toimunud 2014. aastast. Eesti transpordi ja liikuvuse senised suundumused ei ole KHG-säästlikud eelkõige sõiduauto kasutuse, sõidukipargi energiatõhususe aeglase paranemise ja maanteevedude kiire kasvu, valglinnastumise ning ühistranspordi ja kergliikluse osakaalu vähenemise tõttu25. Süsinikuvähese transpordi potentsiaali on ENMAK 2030 hinnatud kõige kõrgemaks seoses inimeste liikumisega – liikumisvajaduse vähendamise, säästvate liikumisviiside osakaalu kasvu, sõiduautode kütuseefektiivsuse suurenemise ja elektrile ja/või vesinikule ülemineku kaudu. Erinevate meetmete mõju CO2 heite vähendamisele, aga ka kaasnevaid riske, on hinnatud erinevates uuringutes, sh viimati 2019. aastal SEI koostatud uuringus „Eesti kliimaambitsiooni tõstmise võimaluste analüüs“. Arengukavas leiavad ära nimetamist kõik ENMAKis ja nimetatud uuringus toodud meetmed transpordisektori ressursimahukuse ja kasvuhoonegaaside heite vähendamiseks, lisaks on pööratud tähelepanu meetmete terviklikule rakendamisele. Seda silmas pidades saab öelda, et Arengukava mõju kasvuhoonegaaside heite vähendamisele ja seeläbi kliimamuutuse aeglustamisele on pigem soodne. Arengukava väga üldisest iseloomust tulenevalt jääb siiski küsimus, kas ja millisel määral suudetakse võetud ambitsioonikaid KHG heite vähendamise eesmärke täita. Arengukavas kirjeldatud põhimõtete ja tegevuste vastavust seatud keskkonna-eesmärkidele, sh KHG heite vähendamise eesmärgile on hinnatud vastavusanalüüsi osana (vt ptk 4). Alljärgnevalt on esitatud transpordiliikide lõikes ülevaade arengukavas esitatud põhimõtetest/tegevustest, millel on suurim potentsiaal aidata kaasa KGH heite vähendamisele ning neid kommenteeritud, tuues välja võimalikud riskid ja võimalused soodsate mõjude tugevdamiseks. Maanteetransport TLAK põhimõtted seoses energiavajaduse vähendamisega – liikumiste eesmärkide ja valiku põhjuste kaardistamine ja analüüsimine, sh selleks vajalike andmete kogumine; kergliikluse eelisarendamine, inter/(multi)multimodaalne taristu kaubavedude suunamiseks maanteelt raudteele; kasutaja maksab põhimõtte rakendamine; ühistranspordi transpordiliikide ja maakondade ülene transpordi korraldamine (graafikute ühildamine, ühest kohast leitav sõidu 24 Greenhouse gas emissioon in Estonia 1990-2018. Submission to the European Comission. Keskkonnaministeerum, 2020 25 Eesti võimalused liikumaks konkurentsivõimelise madala süsinikuga majanduse suunas aastaks 2020. TÜ, SEI, ELF, 2013  25 info, paindlik, sh maakonnapiiree ületav, hinnastamine); ühistranspordi kasutuse kiiremaks ja mugavamaks muutmine läbi ühistranspordikeskuse arendamise, pargi ja reisi parklate rajamise, muust liikluses eraldatud ühistranspordi radade rajamise; hajaasustuses jagatud sõidumajanduse soodustamine; TLAK põhimõtted seoses taastuvenergia osakaalu suurendamisega – kütuseid maksustatakse lähtuvalt nende eriheitest ja energiasisaldusest; avalikult korraldatud ühistransport viiakse nullheitele läbi keskkonnasõbralike hangete; linnades toetatakse alternatiivkütuste kasutuselevõttu tervikuna aastani 2024 koos elektribusside laadimistaristuga, mis võimaldab eelkõige üleöö laadimist; toetatakse laadimistaristu loomist eramute ja kortermajade juurde; uute keskkonnasõbralike kütuste, nagu näiteks vesinik, kasutuselevõtu toetamine. Arengukava seab eesmärgi kasutada transpordisektoris 22% ulatuses (kordajatega) taastuvenergiat, samas selgelt taastuvenergia osakaalu suurendamiseks suunatud põhimõtteid Arengukava ei too. Samuti jääb ebaselgeks, mida taastuvenergia all silmas peetakse. REKK 2030 näeb aastani 2025 taastuvenergia eesmärkide täitmist ette valdavalt biogaasist, pärast seda hakkab suurenema elektri osatähtsus (2030. a tuleks REKK 2030 kohaselt kasutada 240 GWh osas biometaani). Erinevatel hinnangutel on biogaasi abil võimalik katta u. 30% transpordisektori energiavajadusest. → KSH soovitab Arengukavas pöörata tähelepanu ka biometaani kasutuse suurendamisele, mis on lähiaastate perspektiivis oluline nii taastuvenergia eesmärkide kui transpordisektori taastumatu ressursi mahukuse vähendamise seisukohast. Taastuvenergia eesmärgi saavutamisele aitab kaasa Arengukavaga kavandatud tehnoloogianeutraalse alternatiivkütuste taristu rajamine. Siiski on kliimamõjusid silmas pidades oluline aru saada, et mitte igasugune alternatiivkütus ei ole taastuvenergia. Sh näiteks LNG ja sellest toodetud CNG/maagaas/surugaas, mille taristu on arenemas ja mis on võrreldes tavapäraselt kasutusel olevate bensiini ja diisliga oluliselt väikesema keskkonnamõjuga ja suure energiasisaldusega. Lisaks ei ole CO2 otsese emissiooni koha pealt erilist vahet kui võrrelda CNG (compressed natural gas vehicle ehk surugaasi sõiduk) ja tänapäevast diiselsõidukit. Tootjate avaldatud andmete järgi on sarnaste väikesõidukite puhul nii diisel- kui ka surugaasimudelite CO2 emissioon ligikaudu 130-140 g/km. Seevastu CNG raskeveokite ja CNG busside puhul on CO2 jalajälg hetkel ca 10% suurem suurema energiakulu tõttu26. Kui aga kasutada maagaasi asemel taastuvenergia direktiivi säästlikkuse kriteeriumitele (alates 2018. aastast) vastavat biometaani, siis on tegelik emissioon kogu elutsükli vältel vähemalt 60% väiksem (<52 g/km) võrreldes maagaasiga. Ehki elektri- ja vesinikenergia loetakse taastuvenergia alla, sõltub nende tegelik kliimamõju ja ressursikasutus sellest, millest energia on toodetud – kas taastuvatest või fossiilsetest allikatest ja kui taastuvatest, siis kas täiel määral CO2 heite vabadest nagu päike ja tuul või nt puidust. Vaadates kitsalt mõjusid Eesti keskkonnale, ka sellest, kas energia on toodetud kohapeale või avatud turul sisse ostetud. REKK 2030 (tuginedes ENMAK 2030) kohaselt peab aastaks 2030 olema elekter toodetud 40% ulatuses taastuvatest allikatest (tuulepargid, päikeseenergeetika, puitkütused, hüdropumpjaamad), sh tuulest ja päikesest saadav energia kokku > 25%. 2019. aastal moodustas fossiilkütustest tarbitud elekter <50% Eestis tarbitud elektrist, ülejäänud moodustas 26 http://lipasto.vtt.fi/indexe.htm  26 taastuvenergia toodang ja import. 2020. a on trend jätkunud ning esimeselt poolaastal moodustas fossiilkütustest toodetud elekter < 25% ja kodumaine taastuvenergia juba pea 25%. Vastavalt SEI poolt koostatud „Säästva transpordi raportile“27 vähendaks laiaulatuslik üleminek elektriautodele Eestis transpordi kasvuhoonegaasi heidet vaid eeldusel, et akude laadimiskohad kasutavad taastuvatest allikatest toodetud energiat ehk omandavad rohelise energia sertifikaadi. Praegu on elektrisõiduautode keskmine elektrikulu kilomeetri kohta 0,2–0,3 kWh. Juhul kui elektritootmine jätkub Eestis põlevkivipõhisena, siis saastab elektriauto 1 km kohta palju rohkem CO2-ga, kui praegu ülejäänud uued autod keskmiselt. Eestis paisatakse näiteks 1 kWh elektri tootmisel õhku keskmiselt 1,18 kg CO2 (EL-s keskmiselt 0,34 kg). Uute autode keskmine CO2 heitkogus Eestis on 170 g/km. Põlevkivielektriga töötav elektriauto tekitab 250–300 g CO2/km ehk 2 korda rohkem kui EL 2015. a autode sihttase. Elektrienergia osakaalu suurenemine transpordisektoris tähendab elektrienergia vajaduse suurenemist tervikuna, kui elektrienergiavajadust valdkondade üleselt ei suudeta vähendada. Elektri- ja potentsiaalselt ka vesinikenergia peamine kasum seisneb selles, et nende kasutamisega ei kaasne õhusaastet ning müra tekkeallika juures, mis on oluline ennekõike linnalises keskkonnas. Samuti on oluliselt lihtsam heidet koguda ja müra leevendada, kui allikaid ei paikne hajutatult. → Soodsate mõjude suurendamiseks soovitab KSH kaaluda Arengukavas konkreetsemate eesmärkide ja mahtude määratlemist seoses alternatiivkütuste taristu ja elektrisõidukite laadimispunktide rajamisega. Tõenäoliselt aitab eesmärkide numbriline fikseerimine, pidades silmas kõrgemates dokumentides seatud eesmärkide saavutamist, lihtsustada ka finantsiliste vahendite leidmist tegevuste elluviimiseks. Arengukava ei määratle üheselt, kui ambitsioonikas soovitakse olla ühistranspordiga seotud CO2 heite vähendamisel. Ühelt poolt öeldakse, et ühistransport viiakse nullheitele läbi keskkonnasõbralike ühistranspordi hangete. Samas öeldakse, et toetatakse alternatiivkütuste kasutuselevõttu tervikuna aastani 2024 ja seda koos elektribusside üleöö laadimist võimaldava laadimistaristuga. Öeldakse ka, et ühistranspordi hangetel tuleb eelistada keskkonnasõbralikke kütuseid tarbivaid sõiduvahendeid. Viimane on aga oluliselt vähem ambitsioonikas eesmärk, kui eelpool toodud nullheite eesmärk – ühel juhul räägitakse nullheitest, teisel juhul keskkonnasõbralike kütuste eelistamisest. → KSH soovitab Arengukavas kasutada läbivat ühte terminoloogiat, kui see ei ole siiski võimalik, siis defineerida üheselt mõistetavalt mõisted (taastuvenergia, alternatiivkütused, keskkonnasõbralikud kütused, puhtad kütused jms). Arengukava näeb ette transpordivaldkonna strateegiliste dokumentide koostamist KOVis, mis on eelduseks riiklike investeeringutoetuste saamiseks. Arengukavas toodud allmärkust arvestades ei ole üheselt arusaadav, kas strateegiad on vajalikud kõigis KOVides või vaid linnalistes. Tõenäoliselt on vajadus selleks olemas ennekõike linnalistes KOV-ides, arvestades et riikliku rahastuse saamise eeldusena näeb Arengukava ette ka projekti ja selle alternatiivide ja kasutajate elutsükli kogukulu ning keskkonnajalajälje välja arvutamist ja sellega arvestamist. 27 Jüssi,M., Poltimäe, H., Sarv, K., Orru, H. Säästva transpordi raport 2010. Säästva Arengu Komisjon, Tallinn, 2010, 73 lk.  27 → Keskkonnajalajälje arvutamisel soovitab KSH seada fookus CO2 jalajälje, kui peamise ressursitõhususe ja maanteesektori keskkonnamõju indikaatori välja arvutamisele. Arengukava ei pööra otseselt tähelepanu ökonoomsemale autopargile ja selle olulisusele transpordisektori energiamahukuse ja CO2 heite vähendamisel. Seda ilmselt seetõttu, et teema on reguleeritud EL tasemel – Euroopa Parlamendi ja nõukogu määrused nr 443/2009/EÜ (sõiduautod) ja 510/2011 (kaubikud), millega kehtestatakse uute sõiduautode CO2 heitenormid ja sätestatakse lubatud CO2 heite tase. Kaudselt sellele siiski tähelepanu pööratakse, arvestades et Arengukava rõhutab läbivalt elektrienergia kasutuse suurenemist, mis tähendab väiksemat vajadust fossiilkütuste järele ning paralleelselt Arengukavaga seab ENMAK 2030 eesmärgiks oluliselt suurendada taastuvenergia osatähtsust elektrienergias. Raudteetransport TLAK põhimõtted seoses energiavajaduse vähendamisega – Arengukava näeb ette tegevusi energiamahukuse vähendamiseks maismaatranspordi üleselt. Seda tehes transpordivajadus kitsalt raudteetranspordis pigem suureneb, kuid transpordisektoris tervikuna väheneb. TLAK põhimõtted seoses taastuvenergia osakaalu suurendamisega – Lähtuvalt REKK 2030 öeldust on elektrienergia osa taastuvenergiast. Arengukavas on ette nähtud Rail-Baltic elektriseeritud raudteetrassi välja ehitamine ning koostoime tagamine olemasoleva infrastruktuuriga; Tallinn- Tartu rongiliikluse üle viimine elektrile; kogu rongiliikluse üleviimine elektrile, kui see on sotsiaalmajanduslikult põhjendatud; taristutasude kujundamine transpordiliikide üleselt. Arengukava kohaselt tuleb Rail Baltic kasutusvõimaluste suurendamiseks pidada silmas selle potentsiaali rajada ja kasutusele võtta trassil ette nähtud kohalikud peatused. Samas rõhutatakse Arengukava koostamise aluseks olnud uuringus 28 , et raudtee kasutusfookuse nihutamine rahvusvahelistelt ühendustelt siseriiklike vajaduste täitmise suunas võib kahjustada raudtee võimet täita rahvusvahelise reisijate ja kaubaveo eesmärke, seda enam et kavandatud kohalikud peatused on eemal suurematest asumitest. Oluline on tähele panna, et rongiühenduse puhul on suured energiakaod ja sellest tulenevad KHG heite kogused seotud just rongi pidurdamise ning sõitma hakkamisega. Seega juhul, kui kohalike peatuste lisamine hakkab takistama/pidurdama rahvusvahelise ühenduse kiirust, tõstab see eeldatavasti märkimisväärselt rongikasutuse ressursimahukust ja kaudselt läbi elektrienergia tootmise CO2 heitkoguseid, mis aga peaks olema üks peamine Rail Balticu kasutegur. Raudteetranspordi areng on Arengukava kohaselt suunatud väga üheselt raudtee elektrifitseerimise suunas. Suund on mõistetav, arvestades, et tegemist on väikseima keskkonnajalajäljega olemasoleva lahendusega kütusega raudteeliikluse jaoks. Samas viitab Arengukava läbivalt innovaatilistele lahendustele ja keskkonnasõbralikele kütustele, sh neile, mille kasutamiseks valmislahendused puuduvad. Seda silmas pidades soovitab KSH seada eesmärgiks raudteetranspordi keskkonnajalajälje (CO2 heitkoguse) vähendamise ja mitte piirata lahendusi selleks üheselt raudtee elektrifitseerimisega. Teadaolevalt on väljatöötamisel ka lahendused vesinikuenergia kasutamiseks raudteetranspordiks ning erinevatel hinnangutel võib üleminek vesinikuenergiale olla oluliselt kulutõhusam, kui raudtee infrastruktuuri elektrifitseerimine. 28 The Future of passenger mobility and goods transaport in Estonia. International Transport Forum, June 2020.  28 Transpordiliigi kliimamõju silmas pidades on oluline see, millistest energiaallikatest on kasutatav elekter või vesinik toodetud. Lennutransport TLAK toetab lennundussektoris kavandatud arenguid otse- ja ühe ümberistumisega ühenduste arvu suurendamiseks, transiitreisijate arvu suurendamiseks ja lennukauba mahu suurendamiseks. Teadaolevalt puudub käesoleval ajal tehnoloogiline võimekus alternatiivkütuste kasutuselevõtuks lennunduses. Seda arvestades kasvuhoonegaaside heide kitsalt lennundussektoris kavandatu elluviimisel eeldatavasti pigem suureneb. Meretransport TLAK näeb ette kaubaveo ja konteinervedude mahu suurenemist laevandussektoris ja alternatiivkütuste taristu arendamist. Peamise alternatiivkütusena laevaliiklusele nähakse maagaasi (LNG), elektri kasutamist nähakse lähiajal ette ennekõike sadamates 29 . Maagaas on fossiilkütus, mis koosneb 90% ulatuses kasvuhoonegaaside hulka kuuluvast metaanist (CH4) ja sisaldab kokku 10% ulatuses etaani, propaani, butaani ja lämmastikku. Seda arvestades ei ole lähemal ajal ette näha olulist merendussektorist pärineva KHG heite vähenemist. 5.3. Mõju õhukvaliteedile Transpordi valdkond on energeetika ja tööstuse kõrval üks peamiseid välisõhu saastajaid. Kütuste põlemisel eralduvad välisõhku peamiselt NOx , LOÜ, SO2, NH3 ja PM2,5, bensiini aurustumisel LOÜd, teekatte, piduriklotside ja rehvide kulumisel PM2,5 osakesed. Enamik õhusaasteainete kogused on ajas vähenenud tulenevalt maanteesõidukitele kehtestatud karmistunud emissioonistandarditest. Transpordisektori NOx heitkogused on 2018. aastaks võrreldes 1990. aastaga vähenenud 67,1%, LÜO 87,8% ja CO 89,6%. 2018. aastal moodustasid transpordisektori heitkogustest riiklikus arvestuses suurema osakaalu järgmised ühendid: NOx – 39,7 %, CO - 12%, LOÜ – 11,5%, teiste õhusaasteainete osakaal koguhulgas ei ole oluline. 30 Maanteetransport: 2018. aastal oli maanteetranspordist pärineva heite osakaal kogu heitesse saasteainete kaupa vastavalt NOx - 22,5%, LOÜ - 9,5%, CO - 10,8%, NH3 – 1,3%. Maanteetranspordist pärinev heide moodustas transpordisektori koguheitest vastavalt NOx - 56,6%, LOÜ - 56,6% ja CO - 70,0%. Teiste saasteainete hulk (sh SO2 heide) ei olnud oluline. Peamiste õhusaasteainete heited on alates 1990.a vähenenud u. 99,6%, va NH3, kuid ka selle heide on võrreldes 2007. aastaga vähenenud 44,3%. Heitekoguste vähenemine on toimunud peamiselt tulenevalt karmistunud emissiooni standardistest maanteesektorile, mis on vähendanud nii tarbitavaid kütusekoguseid kui vähendanud emissioone. Vaatamata tehtud edusammudele toodavad bensiinimootoriga sõidukid siiski diiselsõidukitest rohkem CO ja LOÜ heidet ning diiselmootoriga sõidukid, mis on peamiselt raskeveokid ja bussid, NOx ja tahkete osakeste heidet. Perioodil 1990-2018 vähenes bensiini tarbimine 48,5%. SO2 emissioon maanteetranspordist on võrreldes 1990. aastaga vähenenud 99,7% ja tänapäeval on maanteetranspordis kasutusel olevad 29 Majandus- ja taristuministri 13.04.2017 käskkiri nr. 1.1-1/17-078. Alternatiivkütuste taristu tegevuskava programmi kinnitamine. 30 Estonian Informative Inventory Report 1990-2018.KAUR, 2020.  29 kütused SO2 vabad. Õhusaasteainete heidet aitab vähendada ka taastuvkütuste kasutusele võtmine. 2018. a kasutati 2,2% ulatuses taastuvat kütust, mille hulka loetakse ka elektrikütus. Raskmetallid pärinevad kütustest vaid väga väikses osas. Suur osa transpordisektori raskmetallidest pärinevad määrdeõlidest (va Pb, mis pärineb tänapäeval täielikult rehvide ja pidurite kulumisest), mille tarbimise hulk on otseses seoses läbisõidetud kilomeetrite kasvuga. Võrreldes 1990. a. on määrdeõlide tarbimine suurenenud 28,3%. Raudteetransport: Eestis on enam kui 2000 km raudteed. Raudtee kasutamisest tulenevad heitkogused tekivad peamiselt diiselkütuste ja kerge kütteõli põletamisest vedurite mootorites. 2018. aasta oli raudteesektorist pärineva heite osakaal koguheitesse NOx – 3,3%, LOÜ 1,5% ja CO 0,6%. Võrreldes 1990. aastaga on kütuse tarbimine vähenenud 83,7% ja heite vähenemine olnud vastavalt 82,8%, 83,4% ja 85,8%. Reisijate arv on kasvutrendis pärast raudtee rekonstrueerimist 2014. aastal. Meretransport: Sektori kütuse kogutarbimine ja emissioonid on kasvutrendis. Võrreldes 1990. a suurenes sektori kütusetarbimine 67,6%, samas suurenes heide vastavalt : NOx – 55,8%, CO – 72,9%, LOÜ – 66,69%, SO2 heide vähenes 46,4%. Viimane tulenes IMO (International Maritime Organization) regulatsioonist meretranspordis kasutatavatele kütteõlidele. 2018. a moodustas merendussektorist pärinev heide koguheitesse järgmise osa: NOx – 22%, SO2 – 4,5%, PM10 – 1,06%, PM2,5 – 1,0% LOÜ – 0,8%, teiste saasteainete hulk jäi väiksemaks. Lennutransport: Lennutranspordist pärineva heite osakaal koguheitesse on väike. Lennundussektor põhjustas 2018.a transpordisektori koguheitest järgmised osakaalud: NOx – 0,7%, LOÜ – 0,7%, CO – 0,7%. Lennundussektorist pärinev õhusaaste on kasvutrendis sarnaselt lendude arvule ja kütuste tarbimisele. Võrreldes 1990. aastaga on sektori kütuse tarbimine kasvanud 68,2% ja heide vastavalt: NOx - 78,3%, LOÜ - 34,9% ja CO - 61,6%. Sisemaa transport: Sisemaa transpordist pärineva heite osakaal koguheitesse on väike. Sisemaa transport põhjustas 2018.a transpordisektori koguheitest järgmise osakaalu: NOx – 3,1%, LOÜ – 0,6%, CO – 0,2%. Eesmärgid õhusaasteainete vähendamiseks Euroopa Liidus on võetud vastu nn NEC-direktiiviga. Eestile on aastaks 2030 kehtestatud järgmised saasteainete vähendamise eesmärgid võrreldes 2005. aastaga: NOx (30%), LOÜ (28%), SO2 (68%), NH3 (1), PM2,5 (41%). Eestile seatud eesmärkide saavutamiseks on koostatud „Teatavate õhusaasteainete vähendamise programm aastateks 2020-2030“ (edaspidi: ÕVP 2020-2030; koostatud 2019), mis annab meetmed mh transpordi valdkonna jaoks. Programmi koostamisel oli aluseks kaks stsenaariumit: 1) BAU stsenaarium, mis põhineb ENMAK 2030 mittesekkuval stsenaariumil ehk lähtub sellest, et senised suundumused jätkuvad ning eeldatakse et uusi transpordinõudlust muutvaid või sõidukipargi ökonoomsust puudutavaid õhusaasteainete täitmise meetmeid ei rakendata; 2) ÕVK stsenaarium, mis lähtub ENMAK 2030 teadmiste põhisest stsenaariumist ehk kirjeldab olukorda, kus transpordipoliitika kujundamine on süsteemne, integreeritud ja lähtub kulutõhusate tegevuste valikust ehk parimast rahvusvahelisest teadmisest. See tähendab, et riigi ja kohalike omavalitsuste maksupoliitika, toetusmeetmete ja tegevuste abil kujundatakse ökonoomset sõidukiparki, integreeritud transpordi ja asustuse vahelist planeerimist, soodustatakse väiksema KHG jalajäljega transpordi- ja liikumisviiside valikuid. Stsenaarium tugineb uuringus „Kulutõhusaimate meetmete leidmiseks  30 kliimapoliitika ja jagatud kohustuse määruse eesmärkide saavutamiseks Eestis“ 31 välja pakutud meetmetel. Stsenaariumitega kaasnevate meetmete välismõjusid on hinnatud vastavalt ENMAK 2030 ja ÕVP 2020-2030 KSH aruannetes. Antud hinnangute kohaselt toimub mõlema stsenaariumi meetmete korral õhusaasteainete vähenemine, kuid nö BAU stsenaariumi korral ei saavutata seatud eesmärke lähtudes transpordisektori koguproportsioonidest saasteainete tekkesse. Trendi mõjutab „Euroopa Parlamendi ja nõukogu määrus (EÜ) nr 443/2009“, mille kohaselt on 2021. aastaks uue autopargi keskmine heitkoguse sihttase 95 gCO2/km ning toimub vanade autode väljavahetamine uute ehk kõrgema EURO klassi autode vastu. ÕVP stsenaariumi korral peetakse eesmärkide saavutamist võimalikuks, aga seda vaid siis, kui ellu viiakse kõik programmi meetmed, mistõttu rõhutatakse kompleksset lähenemist programmi elluviimisel. Käesolev Arengukava ei pööra eraldi tähelepanu transpordisektori õhusaaste vähendamisele, va Arengukava sisukokkuvõttes, kus öeldakse „Arengukava peamiseks fookuseks on transpordivahendite ja -süsteemi keskkonnajalajälje vähendamine ehk kasvuhoone- jm heitgaaside vähendamise poliitika“, kuid õhusaaste vähenemisele aitavad kaasa erinevad Arengukavaga kavandatud tegevused, mis vähendavad sundliikumist, soodustavad kergliikluse ja ühistranspordi kasutust ning alternatiivkütuste kasutuselevõttu ja lähtuvad saastaja maksab põhimõttest. Samas leiavad TLAK-is ära mainimist pea kõik ÕVP, ÕVK stsenaariumi meetmed. Puutumata on jäetud vaid sõidukite rehve ja aerodünaamikat puudutav, võrdlemisi vähe on pööratud tähelepanu ka ökonoomse sõidukipargi olulisusele, mida on rõhutatud olemasolevas (eelmise perioodi) Arengukavas ja mille jälgimiseks on olemas indikaator. Seda arvestades saab siiski öelda, et Arengukavas toodud põhimõtetel on pigem soodne mõju õhukvaliteedile. NEC direktiiviga Eestile seatud heitkoguste vähendamise eesmärkide saavutamine sõltub suuresti sellest, kuivõrd suudetakse Arengukavaga kavandatut põhimõtteid kompleksselt rakendada. Meetmete komplekse rakendamise vajalikkust ja olulisust rõhutab ka Arengukava. See on peamine lisandväärtus, mida Arengukava loob võrreldes varasemalt koostatud dokumentides tooduga (ENMAK 2030, ÕVP 2020-2030). Mh kompleksset rakendamist silmas pidades näeb Arengukava ette strateegiate/säästva liikuvuse Arengukavade koostamise kohustust KOV-ides, milles tuleb mh ära näidata, kuidas ja kui palju panustavad KOV strateegiate tegevused Arengukavas toodud põhimõtete rakendamisse. (Arengukavas toodud põhimõtted/tegevused, mis aitavad mh enim kaasa õhusaaste vähendamisele on suuresti samad, mis kasvuhoonegaaside vähendamiseks mõeldud meetmed - toodud ptk. 5.1 „Mõju kliimamuutusele“.) 5.4. Mõju bioloogilisele mitmekesisusele (sh Natura 2000 võrgustikule) Maismaatransport mõjutab elusloodust negatiivselt peamiselt elupaikade kao ja killustamise läbi, takistab liikide looduslikku levikut ja põhjustab loomade hukkumist teel. Enamik loomaõnnetustest, eriti need, mis toimuvad väiksemate loomadega, jäävad registreerimata. Keskkonnainspektsiooni poolt registreeriti perioodil 2014-2018 18 401 loomaõnnetust, neist 44% põhimaanteedel - ehk veidi alla poole loomaõnnetustest oli koondunud 9,7% riigimaanteedele. 31 Uuring kulutõhusaimate meetmete leidmiseks kliimapoliitika ja jagatud kohustuse määruse eesmärkide saavutamiseks Eestis. Finantsakadeemia OÜ, 2018.  31 95% registrisse kantud õnnetustest juhtus suurulukitega, nendest ligi 80% metskitsedega, 8% põtradega ja 7% metssigadega. Seejuures juhtus enim õnnetusi Tallinn-Tartu-Võru-Luhamaa maanteel. Üldiselt on maanteede mõju iseloom ja olulisus seotud liiklussagedusega. Loomi hukkub enim keskmise liiklussagedusega (2500-10 000 s/öp) teedel. Väga kõrge liiklussagedusega teedel langeb küll loomade hukkumine, kuid tugevneb barjääriefekti mõju. Maanteid liiklussagedusega üle 10000 sõiduki ööpäevas peetakse enamike liikide jaoks pea täielikuks liikumisbarjääriks. Teatud liikide jaoks võib osutuda häirivaks ka transpordiga kaasnev müra. Mõju elurikkusele võib avalduda erinevate mõjude koosmõjudena. Suure liiklussagedusega (hinnanguliselt enam kui 30 000 autot ööpäevas) maanteelt kogutud sademevesi võib puhastamata kujul pinnaveekogusse juhtimisel mõjutada vee kvaliteeti ja seeläbi vee-elustikku. Mõju vee kvaliteedile ja seeläbi vee-elustikule võib tuleneda ka fossiilsete kütuste kasutamisest, millega kaasnev NOx saaste põhjustab sademetega deponeerumisel pinnavee eutrofeerumist. Viimast peetakse oluliseks seoses meretranspordi mõjudega, kuid tegelikult sõltuvad mõjud kütusest, mitte transpordiliigist. Meretranspordiga ja ballastvee käitlusega kaasneb ka oht võõrliikide levikuks, mis võivad osutuda invasiivseks ja seeläbi mõjutada oluliselt meie vete elurikkust. 2018. a andmeil on 18,8% Eesti maismaa territooriumist, 27% territoriaalmerest ja 44% kogu veealast (suured järved + meri) kaitse all, u. 51% maismaast on kaetud metsaga. Tagamaks looduslike ökosüsteemide sidusus ja erineva tasemega rohevõrgustiku elementide (kaitsealad kui tugialad, koridorid) sidusus, on üle Eesti planeeringutega määratud rohevõrgustik. Maismaatransporti planeerides on vajalik tagada rohevõrgustiku toimimine ja vältida olulist mõju kaitstavatele loodusobjektidele. Kui olulise ebasoodsa mõju tekke vältimine ei ole võimalik, sh rohevõrgustiku sidususele, tuleb transpordivajaduse rahuldamiseks leida teised lahendused. Arengukava ei näe ette ühegi konkreetse uue maismaainfrastruktuuri planeerimist, mis tõttu ei ole käesoleva KSH osana võimalik hinnata mõne konkreetse objektiga kaasnevaid mõjusid või on seda juba enne Arengukava koostamist tehtud (Rail Baltic trassivalik, olulisemate põhimaanteede trassivalikute teemaplaneeringud jm). Samas nimetab Arengukava mitmeid transpordisektori arendamise põhimõtteid, millest lähtuvalt tegevust ette nähes tuleb vähemalt kaaluda keskkonnamõjude hindamise läbiviimist. Sellised tegevused on näiteks: ümberistumise sõlmpunktid, pargi ja reisi parklad, 1520 mm raudteelõikude elektrifitseerimine ja kiiruste tõstmine kuni kiiruseni 160 km tunnis ning teatud lõikudel raudtee läbilaskevõime suurendamine, intermodaalsed terminalid kaubavedude suunamiseks maanteelt raudteele ja reisijateveoks, Suure väina silla rajamine jms. (Arengukava kohaselt kaalutakse Suure väina liiklusühenduse alternatiividena silda ja praamiühendust, samas on käimas teemaplaneeringu koostamine, kus on alternatiivina võrdluses ka tunnel.) Arengukava näeb ette ka võimaluse Tallinn-Helsingi tunneli rajamiseks, kuid nendib, et Arengukava perioodil selleks finantsvahendeid siiski ei planeerita. Arengukava alam-eesmärgi, ohutud teed, kohaselt on taristu arendamisel kaks prioriteeti – ohutus ja keskkonnahoid. Need eesmärgid on tihtipeale mõnevõrra vastandlikud. Eriti väljapool linnasid tähendavad ohutumad teed enamasti ka laiemaid teid, sõidusuundade eraldamist barjääridega, tõkete paigaldamist tee äärsetele aladele, laiema ohutusriba jätmist tee äärde jms. Kõik need meetmed suurendavad taristu mõju elurikkusele. Mõjusid aitab oluliselt minimeerida see, kui transpordisüsteemi arendamisel peetakse tugevalt kinni Arengukavas toodud 4-astmelisest printsiibist ehk uue taristu arendamist hakatakse kaaluma alles siis, kui kolm esimest varianti (nõudluse mõjutamine; olemasoleva taristu ja sõidukite tõhusam kasutus; olemasoleva taristu  32 kohendamine) ei ole selgelt piisavad probleemi lahendamiseks. Arengukava kohaselt võtab riik ka suurema rolli liikuvusandmete koondamisel, sh metsloomade liikumine, mis on vajalikud selleks, et mõjusid leevendavad meetmed (ökoduktid jms) oleksid maksimaalselt efektiivsed. Natura 2000 võrgustik Kaitstavate loodusobjektide puhul, mis lisaks siseriiklikule kaitsealade võrgustikule kuuluvad ka üleeuroopalisse kaitsealade võrgustikku Natura 2000, tuleb tegevust planeerides välistada igasugune ebasoone mõju võrgustiku alade kaitse-eesmärkidele ja terviklikkusele. 2020. aastal seisuga koosneb Eesti Natura 2000 võrgustik 66 linnualast ja 541 loodusalast. Eesti Natura 2000 võrgustiku kogupindala on 14 861 km2. Natura võrgustiku alast ca 42% asub meres ja 58% maismaal. Eesti maismaa territooriumist on Natura 2000 aladega kaetud ca 18 %. 2019 a. Euroopa Komisjonile esitatud aruande põhjal on näha, et Eestis oli aastatel 2013-2018 soodsas seisundis 56,7 % loodusdirektiivi elupaigatüüpidest ja 56,2 % liikidest. Ülejäänud liikide ja elupaigatüüpide seisund hinnati ebapiisavaks, halvaks või on neid liike ja elupaiku nii vähe uuritud, et seisund on teadmata. Võrreldes eelmise aruandlusperioodiga (2007-2012) oli kasvanud nii elupaikade kui ka liikide arv, mida Eestis hinnati soodsas seisundis olevaiks. Transpordi ja liikuvuse Arengukava on kõrgema taseme planeerimisdokument, mille peamiseks fookuseks on transpordivahendite ja -süsteemi keskkonnajalajälje vähendamine ehk kasvuhoone- jm heitgaaside vähendamise poliitika. Arengukavas seatud põhimõtteid ja arengusuundi võib pidada läbi üldise keskkonnahoiu kaudselt Natura 2000 võrgustiku kaitse-eesmärke toetavaks (nt CO2e heite vähendamise poliitika; kaubaveos eelisarendatakse mere- ja raudteevedu kui kõige energiatõhusamaid kaugveoliike ning kujundatakse ökonoomset kaubavedu) või neutraalseks (nt liikuvusteenuste kujundamisel arvestatakse rahvastiku vanuse ja arvuga). Samas ei hõlma Arengukava tulenevalt oma üldistustasemest ruumilisi/tehnilisi lahendusi ega tegevusi, mille puhul oleks võimalik Natura hindamist täpsemalt läbi viia või mille rakendamisel võiks ilmneda eeldatavalt ebasoodne mõju Natura 2000 võrgustiku alade kaitse-eesmärkidele või terviklikkusele. Praeguse Arengukava seatud eesmärgid on liiga üldised, et hinnata nende rakendamisega kaasnevaid mõjusid ning seega puudub vajadus Natura (eel)hindamise läbi viimiseks. → Natura (eel)hindamise vajalikkust tuleb kaaluda Arengukava elluviimise järgmistes etappides kui on hoomatavad tegevuse ruumiline ulatus ja aeg ning vajadusel näha ette keskkonnamõjude (strateegiline) hindamine koos vajalikus täpsusastmes Natura 2000 mõjude hindamisega. Sealjuures tuleb silmas pidada, et juhul kui tegevusega kaasneva ebasoodsa mõju leevendamine ei ole võimalik, siis erandi tegemine läbi hüvitusmeetmete kavandamise on võimalik vaid juhul kui tegevuse elluviimine on vajalik alternatiivsete lahenduste puudumise ning üldiste huvide seisukohast eriti mõjuvatel põhjustel, sh sotsiaalsetel ja majanduslikel põhjustel.32 5.5. Mõju veekeskkonnale ja pinnasele Transpordisektor võib mõjutada veekeskkonda mitmeti. Üldiselt pööratakse maanteetranspordist rääkides enam tähelepanu sademevee mõjule, lennu- ja meretranspordist rääkides õhusaastele, 32 Looduskaitseseadus (T I, 06.05.2020, 17) § 701  33 mis avaldab kaudselt mõju ka veekeskkonnale. Seoses sadamate ja laevateede süvendamisega on esikohal mõjud heljumi tekkele, mis võib mõjutada mere elupaikasid ja kudealalasid. Lennuvälja mõjude käsitlemisel on fookuses sademeveekäitlus, sh lennuradade ja lennukite jäätõrje mõjud sademeveele ja selle suublale. Raudteetranspordi mõjud veekeskkonnale on kaudsemad ja seotud suuresti diiselkütuste kasutamisega. Sõltumata transpordiliigist pööratakse tähelepanu avariiolukordadest tingitud võimalikele ohtudele. Fossiilkütuste põletamisel mootorites paiskub õhku makroühendeid, mis sademeveega pinnavette deponeerudes võivad põhjustada veekogude eutrofeerumist (peamiselt NOx) või ka hapestumist (SOx). Viimane on küll seni väheoluline Eesti tingimustes, kus hapestavad komponendid on endiselt neutraliseeritud põlevkivist energia tootmisel tekkiva alusele õhusaate poolt. Fossiilkütuste põletamisel eralduvad ka kasvuhoonegaasid (CO2 CH4, N2O), mis aitavad kaasa kliimamuutustele ja avaldavad seeläbi kaudset mõju veekeskkonnale. Maanteetransport Teemaalt kogutud sademevees võib esineda kõrgendatud määral erinevaid raskmetalle: Pb, Ni, As, Cd, Zn, Cu, kloriide, heljumit ja naftasaaduseid, aga ka mikroplasti Saasteainete kontsentratsiooni suurenemist teemaalt kogutud vees põhjustab autorehvide lagunemine, pidurdusklotside kulumine, autode korrosioon, veetava laadungi jäägid, kütuse põlemisproduktid ja pinnakattelt eralduvad saasteained. Talvel suurendab saasteainete kogust veelgi liiva, naastrehvide ning lume- ja jääkõrvaldusainete kasutamine.. Transpordist pärineva mikroplasti koguseid enamasti ei hinnata ja koguseid ei seirata, samas peetakse transpordist tingitud koormust (autorehvide kulumine, teekatte- ja märgistuse kulumine) üheks suurimaks mere mikroplasti allikaks Euroopas 33 . Läbi transpordi keskkonda paisatud mikroplasti koguste hindamiseks tehakse enamasti mudelarvutusi, mis võtavad arvesse rahvaarvu ja autode (eraldi sõiduautode ja maasturite) arvu ning eksperimentaalselt saadud tulemusi rehvide, teekatte ja – märgistuse kulumise kohta. Eestis on käimas uuringud mikroplasti allikate ja levikuteede kaardistamiseks ning mõjude hindamiseks pelaagilistele ja bentilistele organismidele. Maanteetranspordi mõju pinnaveele ja pinnasele peetakse vajalikuks analüüsida, kui tee liiklussagedus ületab 15 000 auto ööpäevas. Olulist mõju peetakse võimalikuks, kui liiklussagedus ületab 30 000 autot ööpäevas. 34 Vajadusel nähakse tee ehitusprojektis ette settetiikide/ühtlustiikide /aeglase vooluga kraavide jms rajamine, kus toimub vooluhulkade ühtlustumine ja saasteainete (valdavalt metallid) settimine ja loodulik puhastumine enne suunamist suublasse. Heitvesi sademeveetiikide väljalaskudes vastab senise Maanteeameti korraldatud seire tulemusel valdavalt pinnavee kvaliteedi piirväärtustele. Piirväärtuste ületamised üksikutes proovides on seotud maantee kõrval asunud saasteallikate ja ehitusaegsete mõjudega. Aasta keskmisi sademevee saasteainete piirväärtusi maanteelt ärajuhitavas vees ületatud ei ole. Üksikutes proovides esineb ületamisi peamiselt Zn osas (pärineb peamiselt rehvide kulumisel tekkivast tolmust), üksikutes proovides ja osadel aastatel ka Pb (peamiselt kütustest), Ni ja Cd (peamiselt diiselkütustest) osas. Pb kontsentratsioon sademevees ja maanteeäärses pinnases on 33 Hann, S., Sherrington, C., Jamieson, O., Hickman, M., Kershaw, P., Bapasola, A., Cole, G. 2018. Investigating options for reducing releases in the aquatic environment of microplastics emitted by (but not intentionally added in) products. EUNOMIA Report, 335 p 34 Maves AS, 2012. Liiklussõlmede sademevete kogumise ja osalise puhastamise uuring. Töö nr 1205 0 (vahearuanne).  34 oluliselt vähenenud tulevalt pliivaba kütuse suurenenud kasutusest. Arvestades Zn ökoloogilise mõju uuringute tulemusi Soomes, EL tasemel puuduvad kehtestatud ZN piirnormind ning Zn sisaldused on kõrged ka maapinnale jõudvas sademevees (tuleneb peamiselt põlevkivi otsepõletamisest), ning, saab öelda et tõenäoliselt on Zn keskkonnakvaliteedi piirnormid heitvees üledimensioneeritud. 35. Saasteained, eelkõige raskmetallid, mida sademeveega ei juhita suublasse, akumuleeruvad teeäärses pinnases. Maanteeäärsetel aladel akumuleeruvatest raskmetallidest peetakse olulisemateks pliid, kaadmiumi ja tsinki, samuti on mainimist väärt veel vask, kroom ja nikkel, kuid need on kas vähem toksilised või on nende osakaal väiksem. Tuginedes 2002 ja 2003 läbi viidud uuringutele, akumuleeruvad maantee äärses pinnases ennekõike Pb ja Cd. Kontsentratsioonid vahetult tee ääres võivad olla 2-3 korda kõrgemad kui foonialal, jäädes siiski allapoole elamupiirkondadele kehtestatud piirnorme. 30-50 m raadiuses teest on kontsentratsioonid pinnase ülemises 5-10 cm paksuses kihis lähedased looduslikule foonile. Seevastu Tallinna intensiivse liiklusega tänavate ääres on mõõdetud ka pinnase raskmetallide piirarve ületavat sisaldust36, mis näitab raskmetallide akumuleerimist tasemel, mis võib juba ohustada keskkonda või inimese tervist. Arengukava ei kavanda uute suuremahuliste maismaa infrastruktuuride rajamist ja seab eesmärgiks kergliikluse eelisarendamise ning liikluse suunamise maanteelt raudteele ja ühistransporti, samuti vähem keskkonda saastavate alternatiivkütuste kasutuselevõtu soodustamise. Kõik tegevused nimetatud eesmärkide saavutamiseks eeldatavalt vähendavad saasteainete kontsentratsioone tee sademevees ja sellest tulenevat potentsiaalset mõju veekeskkonnale ja pinnasele. Maanteetranspordist pärineva õhusaaste mõju pinnavee kvaliteedile üldjuhul ei hinnata, aga eeldusel, et väheneb maanteetranspordist pärinev NOx saaste, võib eeldada ka kaudset soodsat mõju pinnavee kvaliteedile seoses maanteetranspordi õhuheidetega. Avariiolukordasid esineb käesoleval ajal vaatamata sellele, et liiklusohutus on Arengukava üks peamine eesmärk, eeldatavasti ka edaspidi. Siiski võib eeldada avariiolukordadest tulenevate riskide vähenemist veekeskkonnale, seda ennekõike tulenevalt suuremast alternatiivkütuste (elekter, maagaas, biogaas, kaugemas tulevikus ehk vesinik jms) kasutuselevõtust, millega kaasnevad mõjud veekeskkonnale on oluliselt väiksemad, kui tavakütuse puhul. Lühiajalised ebasoodsad mõjud on võimalikud ennekõike seoses olemasolevate sildade ja teede rekonstrueerimise vajadusega, aga ka näiteks seoses suuremate pargi ja reisi parklate rajamisega. Need mõjud tuleks minimeerida läbi konkreetsete projektide keskkonnamõju hindamistega. Raudteetransport Raudteetranspordi mõjud veekeskkonnale on ennekõike kaudsed ja seotud diiselrongide kasutamisega. Diiselkütuste kasutamisel õhku paiskuvad lämmastikuühendid põhjustavad 35 Maanteeameti maanteega piirneva pinnavee omaseire 2013 – 2019 https://www.mnt.ee/et/tee/vesi- ja-pinnas 36 Hääl., M.-L., 2003. Transpordi saastekoormuse mõju hindamine ja mõju vähendamise meetmete analüüs. TTÜ, Teedeinstituut.  35 sademetega pinnavette deponeerudes vee eutrofeerumist. Arvestades raudteetranspordi väikest mahtu on ka kaudne mõju siiski tagasihoidlik. Arengukava näeb ette rongiliikluse osatähtsuse olulist suurenemist, seda nii kaupade kui reisijate veos, ning elektrirongide osakaalu suurendamist raudteetranspordis. Kui käesoleval ajal on elektrifitseeritud 132 km raudtee infrastruktuuri, mis hõlmab kogu Harjumaa ja Tallinn-Narva suunda Aegviiduni, siis Arengukava näeb ette ka Tallinn-Tartu suuna elektrifitseerimist, koostöö sujumisel Venemaaga Tallinn-Narva suuna elektrifitseerimist ning kui see on sotsiaal- majanduslikult tasuv, siis väiksemate 1520 mm raudteelõikude elektrifitseerimist. Samuti on Balti riike Euroopaga ühendav Rail-Baltic kavandatud elektriraudteena. Elektrirongide kasutusele võtmise mõju veekeskkonnale on võrreldes tavapäraste diiselkütusel rongidega positiive. Vähene kaudne mõju sõltub sellest, millest elekter on toodetud, kas ja milline õhusaaste elektritootmisega kaasneb. Õhutransport Nagu raudteetranspordi mõjud, on õhutranspordi mõjud veekeskkonnale valdavalt kaudsed ja tulenevad kütuse põletamisel õhku paiskuvate saasteainete, Eesti tingimustes ennekõike lämmastiku sisaldusest, mis sademetega pinnavette jõudes võivad potentsiaalselt põhjustada vee eutrofeerumist. Arengukava kavandab mitmeid tegevusi (lennunduskokkulepped, terminalide laiendus ja arendus, koostoime teiste liikumisviisidega, eelkõige Rail Balticuga) Eestit läbiva lennuliikluse mahu suurendamiseks, eesmärgiga tõsta Eesti lennunduse konkurentsivõimet ning suurendada otse ning ühe ümberistumisega lendude arvu. Lisaks näeb Arengukava ette mehitamata õhusõidukite liikluskorralduse süsteemi (U-Space) kasutusele võtmist ja selleks vajaliku taristu loomist, mis võimaldab nende ohutut kooskasutust mehitatud sõidukitega. Süsteemi loomine toetab erinevate keskkonnasäästlike väiksema kapitali- ja madalamate tegevuskuludega teenuste arendamist, mis peaks elavdama majandust tervikuna, aga ka tooma lisandväärtust näiteks julgeoleku, avaliku korra ja tervishoiu seisukohast. Lendude mahu suurenemine tõstab eeldatavasti mõnevõrra õhusaastet ja sellest lähtuvat kaudset mõju pinnavee eutrofeerumisele ja hapestumisele. Arvestades lennundussektori väikest osakaalu transpordisektoris, ei ole selle kaudne mõju veekeskkonnale tõenäoliselt oluline ja eristatav muust mõjust. Siiski väärib märkimist, et lennujaama vahetus naabruses asuva Ülemiste järve seisund on käesoleval ajal kesine, millele viitavad toitainete kõrgendatud kontsentratsioonid ning Ba esinemine vees. Kesist seisundit seostatakse põllumajandusest pärinevate toitainetega ja maaparandusega, mitte lennundusega. Ülemiste järvega ja võimalike avariiolukordadega on seotud lennundussektori suurimad riskid pinnaveele, mida on vajalik lennuliikluse mahu suurendamist kavandades igakülgselt minimeerida. Tulenevalt Ülemiste järve lähedusest ja sellest, et põhjavesi piirkonnas on valdavalt kaitsmata ning tiheasustusalast tingitud suurtest ära juhtimist vajavatest sademevee hulkadest, on probleemne sademevee käitlus Ülemiste järve piirkonnas. Lennuvälja sademeveed suunatakse käesoleval ajal mööda Soodevahe kraavi Pirita jõkke. Vajadusel, sh pidades silmas lennuvälja ja sellega seotud logistikakompleksi suurenemist, tuleb sademeveed enne Soodevahe kraavi juhtimist puhastada. Puhasti võimalik asukoht on kavandatuid Rae valla ÜVK-s.  36 Meretransport Meretranspordi mõjud veele on seotud ennekõike võimalike õnnetusjuhtumitega merel, millega võib kaasneda kütuse ja muude saasteainete voolamine merre. Kaudsed mõjud veekeskkonnale tulenevad lämmastiku ja väävli ühenditest, mis paisukuvad õhku diiselkütuse põlemisel mootoris ning deponeeruvad sademetega merre põhjustades seal vee eutrofeerumist ja hapestumist. Merendusega, ennekõike ballastvee käitlusega, kaasnevad ohud võõrliikide levikule, mis invasiivseks osutudes võivad olla oluliseks mõjuks vee elustikule, mida omakorda arvestatakse rannikuveekogumite seisundi hindamisel. Ohuks merekeskkonnale on ka merendussektorist pärinev mikroplastik, mida kasutatakse nn liivapritsisüsteemides laevakerede puhastamisel, kuid mis võib sattuda merre ka laevakerede puhastamisel pealiskasvust ja vanast värvist, kui puhastamisel ei tagata eemaldatud materjali kokku kogumist.37 → Mikroplastiku allikate ja levikuteede uuringu vahetulemustele tuginedes soovitab KSH ühe võimaliku keskkonnareostuse allikana mainida Arengukavas ka transpordisektorist pärinevat mikroplastiku reostust, millega on oluline arvestada sadamate ja laevade arendamisel. Eesti rannikumere ökoloogiline seisund on kesine (14 kogumis). 2019. a kinnitatud andmeil on ökoloogiline seisund halvaks hinnatud Haapsalu lahe ja Matsalu lahe rannikuvee kogumites. Kesise ja halvema seisundi põhjuseks on valdavalt toitained, mitte head seisundit iseloomustavaks kvaliteedielemendiks füüsikalis-keemilised näitajad ja fütoplankton, suuremate sadamatega rannikuvee kogumite (Muuga-Tallinn-Kakumäe lahe, Narva-Kunda lahe ning Pärnu lahe rannikuvee kogumid) puhul ka suurtaimestik ja suurselgrootud. Keemiline seisund on halvaks hinnatud kõigis rannikuvee kogumites, põhjuseks enamasti Hg, mõnel juhul ka PBDE ja Hg kalas ning TBT ja Cd settes. Eesti rannikuvee kvaliteeti mõjutab lisaks merel toimuvale olulisel määral ka maismaalt jõgede kaudu merre jõudva vee kvaliteet, merre deponeeruv õhusaaste, Läänemere seisund tervikuna, ning kliima ja selle muutumine. Arengukava kavandab tegevusi merendussektori konkurentsivõime suurendamiseks ning sellega seoses intensiivistuvat veeliiklust. Samas rõhutatakse, et merendussektori areng ja konkurentsivõime on tihedalt seotud sektori ohutuse ja keskkonnasäästlikkuse ning kliimaneutraalsusega, mistõttu kavandatakse tegevused sektori keskkonnamõjude vähendamiseks. Õnnetuste arv Läänemeres on langustrendis ja heal tasemel on valmisolek õnnetusjuhtumite korral reageerimiseks, va eriti suured õnnetused nagu näiteks kruiisilaeva ja tankeri kokkupõrge38. Samas on just sellist õnnetustega kaasnevad keskkonnamõjud kõige suuremad, mistõttu on jätkuvalt oluline teha jõupingutusi mereohutuse suurendamiseks, seda eriti intensiivistuva laevaliikluse tingimustes. Siiski ei suuda ka parim tehnoloogia välistada õnnetusjuhtumeid, mistõttu on samavõrra oluline pöörata tähelepanu reostustõrje valmisolekule. 37 Mikroplastiku allikad ja levikuteed Eesti rannikumerre, potentsiaalne mõju pelaagilsitele ja bentilistele organismidele. Vahearuanne I. TTÜ Meresüsteemide Instituut, 2018. 38 The Gulf of Finland assessment. SYKE, 2016  37 Alternatiivkütuste kasutuselevõtt laevanduses on tulenevalt jõustunud või peagi jõustuvast kolmest regulatsioonist (Euroopa Parlamendi ja nõukogu direktiivid 2012/33/EL ja 2016/80/EL ning rahvusvahelise konventsiooni merereostuse vältimiseks laevadelt (MARPOL) VI lisa) hoogu juurde saanud, kuna kõigile nõuetele on raske vastata kasutades tavapäraseid konventsionaalseid laevamootoreid. „Alternatiivkütuste taristu strateegiast“ lähtuvalt nähakse peamise alternatiivkütusena merendussektorile veeldatud maagaasi ehk LNG-d. mis on puhtaim fossiilkütus, koosnedes 90% ulatuses metaanist (CH4) ja sisaldades kokku 10% ulatuses etaani, propaani, butaani ja lämmastikku. LNG kasutamisel ei eraldu õhku väävliühendeid ja väheneb lämmastikuheide, mis põhjustavad vastavalt merevee hapestumist ja eutrofeerumist. Samuti puudub vajadus avariiolukordadest tingitud kütuselekete likvideerimiseks, kuna gaas aurustub õhku. Viimane suurendab küll kasvuhoonegaaside suurenemist õhus, kuid on siiski oluliselt väiksema keskkonnamõjuga kui diiselkütte sattumine vette. Seda arvestades saab öelda, et suund alternatiivkütustele on kindlasti soodsa mõjuga ka veekeskkonnale. Käesoleval ajal Eestis siiski ühtegi laevanduseks sobivat LNG terminali veel ei ole, kuid töö selles suunas käib ja lähematel aastatel on plaanis avada terminalid Muuga sadama territooriumil ning Paldiskis. Samuti on ehitamisel LNG punkerlaev, mis on võimeline punkerdama tankereid, kauba-, teenindus-, reisi- ja teenistuslaevasid nii merel kui sadamates. Laeva tööpiirkonnaks on kavandatud Soome laht. Mõju veekeskkonnale võib potentsiaalselt kaasneda ka tegevustega, mis on vajalikud meresõidu ohutuse tagamiseks, näiteks kaitsemuulide ja lainemurdjate ehitamine, veeteede korrashoid jmt. Siiski on tegemist tegevustega, mille mõjud on valdavalt lühiajalised ning saadav sotsiaalmajanduslik väärtus ning ohutus on olulisemad. Tegevuste kavandamisel on vajalik kaaluda keskkonnamõju hindamise läbiviimise vajalikkust, vajadusel kavandada meetmed mõjude minimeerimiseks. Mõjude osutumine oluliseks on tõenäoline pigem lähtuvalt ebasoodsast mõjust Natura võrgustiku aladele ja nende kaitse-eesmärkidele, kui otseselt mõjust veele. Mandri ja Muhu ühendusena kaalutakse Arengukava kohaselt silda võrdluses praamiühendusega, seejuures on liinil sõitvad praamid teadaolevalt kavandatud üle viia taastuvast energiast toodetud elektrile. Teadaolevalt on algatatud teemaplaneering seoses Muhu ja Mandri vahelise ühenduse kavandamisega, mis hõlmab ka tunneli alternatiivi. → Sellest lähtuvalt soovitab KSH Arengukavas mitte kitsendada mandri ja Muhu ühenduse alternatiivide valikut. Arengukava näeb ette väikesadamate võrgustiku arendamist, mis võib mõjusid veekeskkonnale suurenda. Samas nähakse ette erinevate automaatikalahenduste ja puhaste kütuste kasutamise võimaldamist sadamates. Pole selge, milliseid automaatikalahendusi silmas on peetud, kuid lahendused, mis võimaldavad kiiremat ja ohutumat navigeerimist, tähendavad üldiselt väiksemaid riske ja mõjusid veekeskkonnale. 5.6. Mõju inimesele, sh sotsiaalsetele vajadustele ja varale Transpordisektori mõju inimese tervisele sõltub ennekõike liikluse ohutusest, liiklusega kaasnevatest välismõjudest (õhusaaste ja müra), ning sellest, kuivõrd toetab infrastruktuur kergliikluse kasutamist. Vibratsiooni mõju Arengukava täpsusastmes on tänapäeval pigem  38 väheoluline ja sõltub ennekõike teekatte kvaliteedist ja valdavast transpordiliigist (väikeautod/raskeveokid) Kaudselt mõjutab transpordisektor inimest ka läbi kliima muutumise. Kliima muutumine mõjutab transpordisektorit ennekõike läbi üleujutuste tekkimise linnalises keskkonnas. Muude kliimamuutustest tingitud äärmuslike ilmastikunähtuste, sh tormid ja põuad, sagenemise mõju on Eesti tingimustes pigem vähene. Mõju sotsiaalsetele vajadustele sõltub suuresti transpordi kättesaadavusest, hinnast, mugavusest ja kiirusest, aga ka ruumi kvaliteedist ja sellest, kas ja kuivõrd põhjustab transport piirkondade killustumist või vastupidi ühendab piirkondasid. Muudatused taristus võivad olla üksikisiku jaoks tugevalt soodsa või ka ebasoodsa negatiivse iseloomuga, mis sõltub konkreetse inimese vajadustest ning väärtushinnangutest. Taristu arenguga seotud mõjud varale, inimese heaolule ja tervisele laiemalt on kõige ebasoodsamad enamasti siis, kui suure liikluskoormusega taristu tuleb vahetult õueala lähedusse – suureneb õhusaaste ja müratase, pikeneda võivad juurdepääsuteed. Mõnevõrra paremaks võib pidada olukorda, mil vara jääb vahetult arenduse alla ja ostetakse seetõttu ära. Samas pakub inimeste vajadustega arvestav transpordisüsteem eelkõige avalikke hüvesid ning sellised transpordisüsteemi arengud, mis lähtuvad nn 4-astme printsiibist ehk parima võimaliku lahenduse leidmisest on suuremale osale inimestest eeldatavasti soodsa mõjuga. Liiklusohutus „Transpordi arengukava 2014-2020“ eesmärgiks oli viia kolme aasta liikluses hukkunute arv alla 50-ne. Antud eesmärki ei saavutatud, kolme aasta liikluses hukkunute arv oli keskmisena 62. Käesolev Arengukava seab eesmärgiks viia hukkunute arv liikluses nulli. Transpordisüsteemi arendamisel tuleb Arengukava kohaselt arvestada erinevate liikumisviiside prognoositud nõudlust ja ohutust, kuid samas siiski lähtuda põhimõttest, et riik saab nõudlust suunata lähtuvalt seatud eesmärkidest ning eesmärgist lähtuvalt tuleb valida sobivaim transpordiviis. Kõige ohutum transpordiliik linnadevaheliseks liikluseks on Arengukava kohaselt rongiliiklus. Alam-eesmärk „ohutud teed“ kohaselt on maanteede puhul liiklusohutusega võrdselt tähtis mõju keskkonnale. Transpordi infrastruktuuriprojektide kavandamisel tuleb lähtuda nn 4-astmelisest printsiibist ja kavandada uue taristu rajamist vaid juhul, kui eelnevad lähenemist, ei lahenda probleemi. Uue, seni planeerimata taristu rajamist Arengukava otseselt ette ei näe, samas suunatakse Arengukava maksumuse prognoosi kohaselt 2 miljardit eurot kolme põhisuuna (Tallinn-Tartu, Tallinn-Narva, Tallinn-Pärnu) arendamiseks – aegruumiliste vahemaade vähendamiseks ja liiklusohutuse suurendamiseks. Seejuures ei tule Arengukavast üheselt välja prioriteetide järjestus. Näiteks mõju kitsalt liiklusohutusele võib olla soodne nii juhul, kui kolm põhisuunda ehitatakse 2+2 realiseks, kui ka juhul, kui jõupingutused suunatakse pigem rongiliikluse arendamiseks (millega kaasneb autokasutuse langus) ja alternatiivsete ohutust tõstvate lahenduste kasutamiseks. Keskkonnamõjude poolest tuleks kindlasti eelistada nimetatutest teist varianti. → KSH soovitab taristuehituse lahenduste valikul ja investeerimisotsuste tegemisel (sh ka Arengukavas mainitud objektide puhul) tagada, et lähtutakse Arengukavas nimetatud 4-astmelisest printsiibist ja mõjusid vaadatakse komplekselt,  39 mh viiakse enne otsustamist läbi alternatiivsete lahenduste keskkonnajalajälje hindamine, mida Arengukava ette näeb. Linnalises keskkonnas on kiirused väiksemad ja sellest lähtuvalt väiksem ka liiklussurmade arv. Arengukavas kirjeldatud põhimõtted liikluse vähendamiseks ja rahustamiseks, ühistranspordi kiiremaks ja mugavamaks muutmiseks, kergliikluse arendamiseks, transpordiliikide ja maakonnapiire ületava liiklussüsteemi korralduse arendamiseks jms on potentsiaalselt soodsa mõjuga liiklusohutusele linnalises keskkonnas. Välisõhu kvaliteet Kütuste põletamisel sõidukite mootorites tekivad SO2, CO, NO2, PM10 ja PM2,5. Eestis on õhusaasteainete tase taustaaladel valdavalt madal, üksikutes proovides esineb PM2,5 ületamisi Vilsandi seirejaamas. Linnalises keskkonnas jäävad saasteainete kontsentratsioonid viimastel aastatel alla piirnormide ja on valdavalt langustrendis, madal on CO tase. 39 Inimtervise seisukohast on kõige olulisem peenete osakeste (PM10) sisaldus sissehingatavas õhus. Õhusaaste ärritab eeskätt silmi, ülemisi hingamisteid ja kopse, erinevatel inimestel võivad sümptomid olla erinevad või puududa üldse. Erinevad uuringud näitavad, et PM10 osas ei ole olemas vähimat, ilma mingisuguse riskita taset. Tahkete osakeste tasemeid linnades suurendab lisaks transpordile ka puukütte osakaalu suurenemine muude kütteviiside (elekter, kütteõli jms) kallinedes. PM10 sisaldusele kehtib välisõhus ööpäevakeskmine piirväärtus 50 g/m3, mida võib aasta jooksul ületada 35. korral, PM2.5 aastakeskmine piirväärtus on 25 g/m3. PM10 ööpäevakeskmist piirväärtust ületati 2019. aastal Tallinna kesklinnas 11 ja Põhja-Tallinnas 4 korda. Tartus oli 24 h keskmine peenosakeste saastetase piirväärtusest kõrgem 4. korral. Kõrgeim oli PM10 saastetase Tallinna Kesklinnas – 17,6 μg/m3 ja Tartus – 15,1 μg/m3, ülejäänud seirejaamades jäi keskmine peenosakeste saastetase vahemikku 9 - 12 μg/m3. Eriti peente osakeste (PM2,5), mis moodustavad 5-10% tahketest osakestest, maksimaalseid ja keskmiseid kontsentratsioone vaadates on täheldatav küllaltki väike saastetasemete vaheline erinevus linna – ja taustaalade õhus, mis viitab kaugkande suurele osakaalule või ka looduslike allikate osatähtsusele linnas ning antropogeensete allikate mõjule foonialadel. Tahkete osakeste terviseohtlikkust hinnates on oluline teada, milliseid keemilisi ühendeid need sisaldavad. Seiretulemuste põhjal on seni aastakeskmine raskmetallide saastetase kõige rohkem muutunud Ni ja Pb puhul, As ja Cd kontsentratsioonide osas on muutused olnud väiksemad. 2019. aasta seiretulemustest nähtub, et eelmise aastaga võrreldes on raskmetallide saastetase linnades langenud, sh ei ületanud aastakeskmised kontsentratsioonid vastavaid piir- või sihtväärtusi. Polütsükliliste aromaatsete süsivesinike ja benso(a)püreeni aastakeskmine sisaldus tõusis eelmise aastaga võrreldes vähesel määral Tartus, mujal langes. Välisõhu kvaliteedi mõju inimesele Eesti linnades (Tallinn, Tartu, Kohta-Järve, Narva, Pärnu) on uuritud Tartu Ülikooli poolt kahe erineva uuringu raames aastatel 2007 ja 2008. 4041 Uuringu esitatud hinnangul kohaselt on suurem osa õhusaaste tervisemõjudest Eesti linnades põhjustatud peenetest osakestest. mis ei ole üks keemiline ühend, vaid just segu erinevatest eriti väikestest osakestest ja vedeliku piiskadest. Peened osakesed (PM 10) läbivad tavaliselt ninaõõne ja kurgu ja 39 Välisõhu kvaliteedi seire 2019. Riiklik Keskkonnaseire alamprogramm. EKUK, 219 40 Välisõhu kvaliteedi mõju inimese tervisele Tartu, Kohtla -Järve, Narva ja Pärnu linnas“; TÜ arstiteaduskond, 2008 41 Välisõhu kvaliteedi mõju inimese tervisele Tallinna linnas. TÜ arstiteaduskond, 2007  40 jõuavad kopsudesse, nendes suuremad osakesed (PM2,5-10) pärinevad eeskätt pinnasest, teekattest, tolmust ja tööstuslikest ettevõtetest ja ülipeened osakesed (PM 2,5) eelkõige transpordi heitgaasidest, erinevatest põlemisprotsessidest ning atmosfääris toimunud keemilistest reaktsioonidest. Kui osakesed on väiksemad kui 2,5 µm, võivad nad jõuda kopsualveoolidesse, veelgi väiksemad osakesed (PM< 100) võivad osakesed tungida otse vereringesse. Eriti tundlikud peente osakeste suhtes on mitmed riskigrupid nagu näiteks südame- ja kopsuhaigustega inimesed. Kokku põhjustavad ülipeened osakesed 2007 uuringu andmeil Tallinnas keskmiselt 296 varast surma aastas ja tähendab keskmiselt 10-13 aastat lühemat eluiga iga juhu kohta. Kui kaotus jagada kogu populatsiooni ning inimeste eluea peale, elab iga Tallinna elanik õhusaaste tõttu hinnanguliselt 7,7 kuud vähem. Õhusaaste mõju elanike tervisele põhjustab sotsiaalmajanduslikke väliskulusid. Tallinna õhusaastest tingitud rahalise kaotuse mõju on peamiselt kaotatud aastad, mille väliskuluks on uuringus hinnatud 256 mln aastas, millele lisanduvad hospitaliseerimise kulu 4,5 mln aastas. Müra Erinevatel hinnangutel moodustab liiklusmüra u. 90% välisõhus levivast mürast. Raudteede ja lennukite müra on lokaalsem, kuid mõjutab siiski paljusid inimesi. Teadusuuringutes on leitud seoseid müra ja unehäirete, madala sünnikaalu, enneaegse sünni, vaimse tervise probleemide ja kognitiivse võimekusega. Mürast tingitud haigused võivad olla mõjutegurite lõikes erinevad, kuid levinumad on südameveresoonkonna haigused ja vaimse tervisega seotud probleemid.42 Üle-Euroopalise välismüra tervisemõjude hinnangu alusel põhjustab müra Euroopa Liidus igal aastal ligi 12 tuhat varajast surma, 49 tuhat haiglaravijuhtu, 6.4 miljonil inimesel unehäireid ning ligi 20 miljonit inimest on häiritud müra tõttu. Euroopa Keskkonnaagentuuri Eesti faktilehe alusel põhjustab 2017. aasta müraga kokkupuute andmeid kasutades liiklusmüra igal aastal Eesti linnaaladel 61 varajast surma, 187 täiendavat südame isheemiatõve juhtu, pea 10 000 inimese uni on mõjutatud ning pea 50 000 on häiritud liiklusmürast. 43 Liiklusmürast mõjutatud inimeste arv oli 2018. aastal 300 831 ning on võrreldes eelmiste aastatega langustrendis 44 , 2017. aasta Strateegiliste mürakaartide andmetel elas üle 55 dB müratsoonides Tallinnas 57% elanikkonnast ja Tartus 51% elanikkonnast.45 Arengukavas toodud põhimõtete/tegevuste mõju inimese tervisele, on eeldatavasti soodne – väheneb õhusaaste ja alaneb müratase ja seda ennekõike linnalistes asulates. Enim aitavad soodsa mõju tekkele kaasa Arengukavas nimetatud eesmärgid ja tegevused, mis on suunatud sundliikumiste vähendamisele, ühistranspordi, kergliikluse ja raudtee kui väiksema keskkonnamõjuga liikumisviiside kasutuse suurendamisele ja omavahelise kombineerimise lihtsustamisele. Lisaks ka raudtee ühenduskiiruste suurendamine ning väiksema keskkonnamõjuga transpordikütuste kasutuselevõtt. Sotsiaalsed vajadused ja vara 42 Eesti keskkonnakasutuse välismõjude hindamise analüüs. I etapp. Sa Mõttekoda PRAXIS, Terviseamet, 2018 43 EEA, 2018. Estonia noise fact sheet 2018. Copenhagen: European Environmental Agency 44 Lisa 1.3 Transpordi ja liikuvuse arengukava 2021 -2030 koostamise ettepanek 45 ENMAK 2030 KSH aruanne  41 Mõju sotsiaalsetele vajadustele ja varale on Arengukava üldistusastmes raske hinnata. Mõjud võivad oluliselt erineda sõltuvalt piirkonnast, sotsiaalsete gruppide erinevusest (n sissetulekutest, vanusest jms), taristu valmisolekust muutustega kaasa minna, ühistranspordi korraldusest jms. Arengukava mõju linnaliste asumite elanike sotsiaalsetele vajadustele ja heaolule on hinnanguliselt pigem soodne, samas kui maapiirkondade elanike jaoks, eriti vanema ja vähem kindlustatud elanikkonna jaoks võivad mõjud olla ka ebasoodsad. Nii soodsate kui ebasoodsate mõjude avaldumine ja tugevus sõltuvad ennekõike tegevuste rakendamise komplekssusest/süsteemsusest, järjekorrast, intensiivsusest, kiirusest jms. Näiteks, liiga väike kütuste hinnavahe ei pruugi anda soovitud nihet vähem saastavate kütustega autode eelistamisele, samas kui liiga suur hinnavahe võib oluliselt halvendada vähem kindlustatud elanike heaolu ja seda eriti maapiirkondades, kus puudub vajadustele vastav alternatiivkütuste taristu ja/või võimekus osta väiksema keskkonnakoormusega kallimaid autosid, ühistranspordi ühendused on oluliselt halvemad kui linnas ning jagamismajandus ei ole veel piisavalt levinud või kättesaadav. Soodsate mõjude avaldumiseks inimeste heaolule, on oluline erinevate survemeetmete oskuslik kombineerimine alternatiivsete lahenduste kasutamisel saadavate kasudega. Seejuures on tulemuste saavutamiseks oluline kavandata meetmeid, sh erinevaid soodustusi ja makse, pidades silmas Euroopas toimuvaid arenguid laiemalt. Üldiselt hinnatakse rahaliste meetmete mõju tulemuste saavutamisele kõige suuremaks, kuid kõrgeimad on ka nende meetmetega kaasnevad riskid ebasoodsate kõrvalmõjude avaldumiseks. 5.7. Mõju kultuuripärandile ja maastikele Kultuuripärandina käsitletakse üldjuhul kultuurimälestisi, „UNESCO maailmapärandi nimistus“ olevaid objekte, pärandkultuuri objekte, väärtuslikke maastikke ning miljööväärtuslikke hoonestusalasid. Otsene mõju kultuuripärandile võib potentsiaalselt tuleneda eelkõige taristu rajamisest ja rekonstrueerimisest, kuid Arengukava täpsusaste on liiga üldine selleks, et konkreetseid mõjusid täpsemalt kirjeldada. Mh võib ehitamisel välja tulla seni kaardistamata arheoloogilisi leide, mis enne töödega edasi minemist tuvastada. Viimane tähendab aja- ja rahakulu, mistõttu on soovitatav ehitusele eelnevates etappides selgitada võimalusel välja leidude esinemise tõenäosus ja vajadusel sellega ehitustöid planeerides juba arvestada. Laiemal skaalal on transpordisektori otsesed mõjud kultuuriväärtustele Eurooas tervikuna seotud ka mootorikütustest pärinevate väävli ühenditega, mis põhjustavad happevihmasid. Eestis, kus happevihmasid põhjustav SO2 heide on endiselt neutraliseeritud põlevkivitööstuse aluselise lendtuhaga ei ole happevihmad probleemiks. 6. KSH ettepanekud arengukava täiendamiseks, soodsate mõjude võimendamiseks ning ebasoodsate mõjude leevendamiseks KSH poolt tehtud ettepanekud ja soovitused ebasoodsate mõjude leevendamiseks ja soodsate mõjude võimendamiseks on konteksti säilitamiseks esitatud aruande sisupeatükkides läbivalt, vastavate teemakäsitluste juures, seda nii peatükis 4 (vastavusanalüüs) kui ka 5 (välismõjude analüüs). Soovitused on tähistatud sümboliga → (mis võimaldab need lihtsasti leida vastava teemakäsitluse juures). Neid läbivalt esitatud ettepanekuid siinkohal ei korrata.  42 Nagu selgitatud ka eelnevates peatükkides eeldatava mõju kirjeldamise käigus, on TLAK näol tegemist võrdlemisi üldise dokumendiga. Selles sisaldab palju põhimõtteid, mille järgimisel kaasneb keskkonnale eeldatavasti pigem soodne mõju. Samas, kirjeldatud põhimõtete detailsemat kavandamist nähakse ette läbi erinevate programmide, tegevuskavade ja KOV-i koostatavate transpordi strateegiate (mis kõik ei ole osa käesolevast Arengukavast, vaid koostatakse eraldi). Arengukava enda tekstis kasutatakse mitmel juhul sõnastusid „toetatakse“ ja „soodustatakse“, näiteks „toetatakse keskkonnasõbralike kütuste kasutuselevõttu“ ja „soodustatakse keskkonnasõbralikele transpordivahenditele üleminekut“. Sellises sõnastuses esitatud tegevused ei võimalda üheselt hinnata kaasnevat välismõju ja Arengukava vastavust kõrgema tasandi strateegilistele dokumentidele, eriti kui selleks ei ole eelarvet planeeritud. Seega hakkab reaalne areng ja mõjud sõltuma mitte niivõrd praeguses Arengukavas sisalduvatest positiivsetest põhimõtetest, vaid sellest, milliseid valikuid tehakse järgnevates etappides. Samuti mõjutavad seda suuresti Arengukava välised asjaolud, nagu rahaliste vahendite kättesaadavus, poliitiline tahe jms. Sellest tulenevalt esitab KSH alljärgnevalt lisaks mõningad üldisemad, valdkondade ülesed ning pigem Arengukava ülesehitust ja fookust puudutavad ettepanekud, millele tähelepanu pöörata valdkonna arengut soodsas suunas suunamiseks ning transpordisektori ebasoodsate mõjude vältimiseks/leevendamiseks. Arengukavas esitatud eesmärgid ja põhimõtted nende eesmärkide saavutamiseks on paratamatult mõningal määral vastandlikud ning kõiki seatud eesmärke ei ole võimalik üheaegselt maksimaalselt saavutada (arvestades muuhulgas rahaliste vahendite piiratust). Näiteks võib siinkohal tuua vastuolud liiklemise mugavamaks muutmise, aegruumiliste vahemaade vähendamiseks ja ohutuse tõstmiseks maanteede arendamise ning keskkonnaeesmärkide vahel. Samuti avaldub Arengukava siseselt vastuolu 4-astme printsiibi rakendamise (sh nõudluse suunamise) ning nõudlusest lähtuva põhimaanteede arendamise vahel. Samas puuduvad Arengukavas selged prioriteedid tegevuste ellu viimiseks. → KSH teeb ettepaneku määratleda Arengukavas täpsemalt, millises prioriteetsuse järjekorras tuleb erinevatest Arengukavas sisalduvatest põhimõtetest (sh 4-astme printsiibi kasutamine) ja indikaatoritest lähtuda, seda nii edasiste programmide koostamisel kui investeerimisotsuste langetamisel. Seejuures võib välja tuua, et ka eelmise perioodi (2014-2020) Transpordi Arengukava oli üles ehitatud sarnaselt, sisaldades pigem erinevaid valdkondlikke põhimõtteid ja eesmärke (sh mitmeid keskkonnaga seotud eesmärke), määramata selgeid prioriteete ning uusi piiranguid arengu jõuliseks suunamiseks. Käesoleva Arengukava koostamise alguses tehtud eelmise perioodi tulemuste hindamine (Arengukava lisas 5) näitas, et nii mõndagi keskkonda puudutavat eesmärki ei suudetud täita (näiteks ühistranspordi ja aktiivsete liikumisviiside kasutajate osakaalu tõusu ei ole kavandatud mahus toimunud, samas ületas maanteede liikluskoormuse kasv prognoositud taseme juba enne Arengukava perioodi lõppu ning ei vähenenud seos majanduskasvuga). Sellest tulenevalt võib järeldada, et eesmärkide täitmiseks ei puugi piisata vaid nende sõnastamisest ning olemasolevatest trendidest (nõudlusest, harjumustest) lähtumisest, vaid  43 jõulisemalt ja suunatumalt peaks tegelema nõudluse mõjutamise ning käitumisharjumuste muutmisega, mh ka majanduslike meetmetega. → Arengukava programmide koostamisel kavandada meetmeid terviklike meetmepakettidega ning seejuures lähtuda olemasolevatest meetmete tulu-kulu analüüsidest ja modelleerimise tulemustest (sh „Uuring kulutõhusamate meetmete leidmiseks kliimapoliitika ja jagatud kohustuse määruse eesmärkide saavutamiseks Eestis“ ja „Eesti kliimaambitsiooni tõstmise võimaluste analüüs“, samuti Arengukava Lisas 1 toodud ITF/OECD sisenduuring). Arengukava näeb ette tegevussuuna Paremini ühendatud ja hästi toimiv ühistransport, kus rõhutatakse vajadust ühistranspordi heal tasemel toimimiseks arvestada ühistranspordi korraldusega juba nii riigi kui KOV maakasutuse planeerimisel ning viia planeerimise õigusraamistik ja praktikad sellega vastavusse. Saavutamise mehhanisme ei ole nii täpselt välja toodud, ent võib eeldada, et tegevusel on seosed KOV tasandi strateegiliste dokumentide koostamisega. Selle juures on oluline, et ka riik ise näitab eeskuju mitte ainult läbi roheliste hangete – igasugune avalikust eelarvest tehtud investeering või riigipoolne otsus, mis on seotud inimeste liikumise või tõmbekohtade tekitamisega (koolid, haiglad, muuseumid jne), oleks kaalutud asukohaga soodustades rongiga, ühistranspordiga, jalgsi ja rattaga liikumist. → KSH teeb ettepaneku rohkem rõhutada vajadust siduda transpordi valdkonna arengu integreerimise olulisust maakasutuse planeerimisse vähendamaks sundliikumisi ja saavutamaks modaalset nihet. Seda nii riigi kui KOV tasandi strateegilistes dokumentides kui koostöös erinevate ametkondade vahel. Arengukava maksumuse prognoosis sisaldub kulusid, mis ei ole Arengukavas seotud ühegi konkreetse eesmärgiga. → Investeerimisotsuste selguse tagamiseks soovitab KSH kajastada Arengukava koostamise hetkel teadaolevad suuremad investeeringud ka Arengukava eesmärkide ja tegevuste all, et oleks üheselt arusaadav, millise eesmärgi täitmisesse investeering eelkõige panustab. Arengukava ellu viimine on kavandatud programmi või programmidega, mis tuleb TLAK kohaselt kavandada kooskõlas Arengukavas seatud indikaatorite sihttasemetega. → KSH ekspertgrupi hinnangul ei ole selge, kuidas täpsemalt on edasiste programmide koostamisel planeeritud hinnata kooskõla Arengukavas seatud indikaatorite sihttasemetega, sh kas indikaatorite saavutamist plaanitakse hinnata programmide üleselt või üksikute programmide lõikes. (Teadaolevalt parim viis indikaatorite saavutamise hindamiseks on meetmete mõju modelleerimine, mille teostamine kõikide edasiste programmide koosseisus on eeldatavasti ebarealistlik). KSH soovitab Arengukava koostamisel läbi mõelda, milliste meetoditega hinnatakse programmide koostamise etapil  44 kavandatavate meetmete/meetmepakettide kooskõla Arengukavaga ja Arengukavas seatud indikaatorite sihttasemete saavutamisega. Arengukava rõhutab läbivalt innovatsiooni ja nutikaid lahendusi. Areng ja innovatsioon on ka mitmete Arengukavas nimetatud tegevuste, samuti Arengukava perioodi ulatusest välja jäävate tegevuste eelduseks. Samas ei ole Arengukavas näidatud ära selleks vajalikku eelarvet. → KSH soovitab ära näidata ka eelarve teaduse- ja arendustegevusteks. 7. Seire (indikaatorid) TLAK iga alapeatüki alguses on toodud indikaatorid ja sihttasemed, mille saavutamist/elluviimist nähakse ette hinnata vähemalt kaks korda Arengukava kestel, plaanitult 5. ja 10. aastal (2025./2030. a.). Hindamise tulemustele tuginedes tehakse vajadusel muudatused Arengukavas. Transpordi programmide jooksvaid tulemusi hinnatakse Arengukava kohaselt iga-aastaselt tehtava tulemusaruandluse raames. KSH koostamisel täpsustati transpordisektori joaks asjakohased keskkonna-eesmärgid ning koondati erinevates strateegilistes dokumentides nimetatud indikaatorid eesmärkide täitmise jälgimiseks (Lisa 2). Järgmisena valiti KSH käigus iga keskkonnaeesmärgi täitmise jälgimiseks välja sisult sobilikud indikaatorid Arengukava koostamise hetkel kehtivate strateegilistes dokumentides toodud tulemusindikaatorite ja Arengukavas kasutatud indikaatorite põhjal (ning vajadusel nähti ette täiendavad indikaatorid ja/või seire vajadus. Seejuures on täiendavate tulemusindikaatorite sisu ja sihteesmärgid toodud vastavalt nende aluseks olevale dokumendile ning neid ei ole KSH ekspertgrupi poolt täpsustatud. KSH poolt soovitatavate indikaatorite rakendamise võimalikkus sõltub andmete kättesaadavusest ning tegelikult mõõdetavatest näitajatest. Juhul, kui reaalselt kättesaadav andmestik muutub ja/või uuendatakse indikaatori alusdokumendis olnud baas- ja sihttasemete väärtusi, tuleb ka alltoodud indikaatorite sisu üle vaadata ja ajakohastada. Samas tuleks tagada, et indikaatoritega hõlmatavad valdkonnad saaks seire käigus sarnaselt kaetud, st kui vastavat indikaatorit pole võimalik kasutada andmete puudumise tõttu, tuleb need andmed välja töötada või valida seireks teine sama valdkonda sisuliselt piisavalt kattev indikaator. → KSH tulemusena soovitatavad indikaatorid on järgmised (indikaatorid on nummerdatud vastavalt seatud keskkonnaeesmärkidele ptk 4-s, sulgudes on märgitud indikaatori ja baas- ning sihttaseme aluseks olev strateegiline dokument): E 1.1. Transpordisektori kasvuhoonegaaside heite konkurentsivõimeline vähendamine (TLAK) 1. Transpordisektori kasvuhoonegaaside summaarne heitkogus Näitaja / Aasta Algtase Hetketase Lõpptase 2005 2018 2035  45 KHG heitkogused (kt 2,168 2 404,70 1350 CO2-ekvivalenti)46 Transpordi CO 2 e vähendamine 13% vrdl 2005. aastaga 2030. aastal või EL transpordipoliitika valge raamatu tase (1720 kt CO2e 47 ). Täpsustub (karmistub) septembris 2020, kui EK tuleb välja uue ESR kohustuse ettepanekuga kliimaseaduse ja roheleppe valguses. Lineaarsel KHG vähendamisel, kui võtta eesmärgiks EL roheleppe trajektoor -90% KHG transpordis aastaks 2050, oleks transpordisektori 2035. a sihttase 1350 kt CO 2 e ehk 38% võrra vähenemine võrreldes 2018. aasta tasemega. E 1.2. Vähendada sundliikumiste vajadust 1. Hea ühistransporditeenuse teenindusalas paiknevate elu - ja töökohtade osakaal 48 (TLAK) 2. Transpordinõudlus sõiduautode kasutamisel võrreldes 2010. aastaga (ENMAK) Näitaja / Aasta Algtase Lõpptase 2010 2035 Transpordinõudlus 6100 mln reisija-km - <5% sõiduautode kasutamisel Transpordinõudlus võimaldab jälgida muutusi sõiduautoga tehtavate liikumiste mahus ja seeläbi hinnata, kuivõrd on erinevad meetmed panustanud üldisesse autokasutuse ning sundliikumiste vähendamisse. → TÄIENDAV SOOVITATAV INDIKAATOR: leibkondade kulutused transpordile linnalistes ja maapiirkondades Arengukava vahehindamistel on soovitatav tähelepanu pöörata leibkondade kulutustele transpordile erinevate elanikegruppide lõikes linnalistes ja maapiirkondades.Näitaja võimaldab hinnata linnalise ja maalise piirkonna elanike majanduslikku koormatust seotuna eri liikumisviisidega, samuti liikumisvajaduste mahtu Auto kasutamine on enamasti kõige suuremate kulutustega seotud liikumisviis, olles samas eriti maapiirkondades tihti ainukeseks alternatiiviks, tuues just neis piirkondades kaasa suurema liikumisvaesuse ja sunnitud autokasutuse. Näitaja võimaldab hinnata nii sundliikumiste vähenemist kui modaalse nihke saavutamist, sh saavutamise 46 Eesmärk ei hõlma lennundussektori CO 2 -heitkoguseid 47 EL Transpordipoliitika valge raamat 2011 seab eesmärgiks vähendada transpordi kasvuhoonegaase 2030. aastaks 20% võrra võrreldes 2008. aastaga. Eesti 2008. a transpordi CO2 heide o li ca 2150 kt CO2e. St 20% vähenemine tähendab sihttaset 1720 kt CO2e 2030. aastal. ESR kohustus samaks aastaks on (n.ö solidaarne teiste ESR sektoritega) 1832 kt CO2e. 48 Metoodika on koostöös Maanteeametiga väljatöötamisel.  46 potentsiaali (arvestades eri piirkondade elanike elatustaset) ning suunata vajadusel täiendavaid tegevusi konkreetsemale sihtgrupile. E 1.3. Saavutada tasakaalustatud nihe keskkonnahoidlike transpordiliikide suunas 1. Liikumisviiside jaotus % transpordiliigi lõikes 49 (TLAK): Näitaja / Aasta Algtase Vahetase Vahetase Lõpptase 2020 2025 2030 2035 ÜT, jalgsi ja rattaga osakaalude tasemed (%) 38 45 53 55 Mõõdik näitab, kuivõrd on läbi kompleksse planeerimise ja säästvate liikumisviiside eelistamise kasvanud inimeste osa, kes saavad liikumiseks kasutada aktiivseid liikumisviise (jalgsi, rattaga) või sõita ühistranspordiga. On tehtud eeldus, et tööle käimise viis kirjeldab ka üldisemalt liikumisviiside valikut, kuna tegemist on enim esineva igapäevase tegevusega. 2. Reiside arv transpordiliigiti linnapiirkondades/kogu maismaa sõitjateveos (TLAK): Näitaja / Aasta Lõpptase Lõpptase 2035 2035 linnapiirkonnas üleriigiliselt Jalgsi, jalgrattaga ja ühissõidukitega (bussi, trammi, rongiga) töölkäijate 70 55 osakaal (%) Autoga töölkäijate osakaal (%) 30 45 → TÄIENDAV SOOVITATAV MEEDE JA INDIKAATOR: aktiivsete ja kombineeritud liikumisviiside loendussüsteemi välja töötamine Samas tuleb välja tuua, et senini on eri liikumisviiside, eeskätt jalgsi ja jalgrattaga liiklejate osakaalu välja selgitamiseks kasutatud tööjõu-uuringu andmeid, mis ei anna aga katvat infot kogu liikumiskäitumise kohta. Seega oleks soovitatav võimalusel välja töötada ja juurutada süstemaatiliselt laiem loendussüsteem erieesmärgiliste liikumiste uurimiseks, eriti aktiivsete liikumisviiside (sh ka erinevad elektrilised liikumisvahendid) kasutamise osas. Lisaks on üha suurem vajadus jälgida erinevate liikumisviiside kombineerimist ja jagamisteenuste kasutamist. Adekvaatse ülevaate omamine eri liikumisviiside kasutatavusest kogu igapäevase liikumismustri juures võimaldab analüüsida nii seoseid taristu rajamise, asustusstruktuuri kui õnnetuste esinemisega ning edaspidi täpsemalt hinnata vajadust transpordivõrgu ning maakasutuse muudatusteks antud asukohas. 49 TT230 (Tööjõu uuring) hõivatud soo ja töölkäimise viisi järgi  47 E 1.4. Vähendada transpordisektori energiatarvet 1. Transpordi energiakulu ei kasva ja jääb 33 500 TJ tasemele (TLAK). Näitaja / Aasta Algtase 2019 Sihttase 2035 Transpordisektori energiakulu (mln 33 500 33 500 TJ) Mõõdik näitab seda, et vähem energiat kulutavate liikumisviiside osakaalu suurenemise läbi on transpordisektori energiakulu jäänud samaks samal ajal kui liikuvus on suurenenud. 2. Tonn-km % transpordiliigi lõikes (maantee ja raudtee) (TLAK) Näitaja / Aasta Algtase 201850 Sihttase 2035 Raudteeveo osatähtsus maismaa 46,2 kaubaveos (%) Maanteeveo osatähtsus maismaa 53,8 kaubaveos (%) Mõõdik näitab kaubavedudes kasutatavate transpordiliikide osakaalude muutust ja seeläbi modaalnihke toimumist energiatõhusamale veoliigile maanteelt raudteele. 3. Sõidukipargi kütusekulu jääb samaks võrreldes 2010. aasta tasemega 8,3 TWh (ENMAK) Näitaja / Aasta Algtase 2010 Sihttase 2035 Sõidukipargi kütusekulu 8,3 8,3 TWh E 1.5. Tõsta taastuvenergia osakaalu transpordisektori energia lõpptarbimises 1. Taastuvenergia osakaal transpordis aastaks 2035 on 22,7% 51 (TLAK) Näitaja / Aasta Algtase Sihttase 2035 Taastuvenergia osakaal transpordis 352 22,7 (%) E 2. Vähendada transpordiga seotud õhusaastet, eriti linnades; E 6.2. Vähendada õhusaaste kahjulikku mõju inimese tervisele 50 Ülevaade ÜRO tegevuskava 2030 täitmisest Eestis, 20 20 51 Vastavalt Riiklikule energia ja kliimakavale, prognoosides 0,85% kasvu aastas. 52 TLAK Lisa 5  48 NEC-direktiiv Eestile aastaks 2030 kehtestatud eesmärgid õhusaasteainete heitkoguste vähendamise kohustused aastateks 2020 ja 2030 võrreldes 2005. aasta tasemega (ÕVP) 53 Näitaja / Aasta54 Vähendamise eesmärk Vähendamise Vähendamise eesmärk (%) eesmärk (%) (%) 2020 2025 2030 NOx 18 14 30 SO2 10 19 28 LOÜ 32 50 68 NH3 1 1 1 PM2,5 15 28 41 E.3. Kasutada transpordi taristu uuendamisel loodusressursse säästlikult 1. Taristuehituses kasutatavate maavarade kaevandamise maht 2. Taristuehituses tekkivate jäätmete taaskasutamise määr 55 Mõõdikutele ei ole seatud hetkel sihttasemeid, kuna sellekohast seiret ei ole teiste strateegiliste arengudokumentidega kavandatud. Samas on oluline ka Arengukava kontekstis seirata, et taristuehituses järgitaks taastumatute loodusressursside võimalikult suure lisandväärtusega kasutamise ja ringmajanduse põhimõtteid ning see kajastuks valdkonna kohta kogutavates andmetes. E.4. Vähendada transpordi sektori mõju bioloogilisele mitmekesisusele Mõõdikute baas- ja sihttasemed on toodud „Looduskaitse arengukava aastani 2020“ andmete põhjal ning näitajad täpsustatakse koos looduskaitse strateegiliste eesmärkide uuendamisega. 1. Toimivate ökoduktide ja väikeulukitunnelite arv (Looduskaitse arengukava): Näitaja / Aasta Algtase 2011 Sihttase 2020 Ökodukte 0 4 Väikeulukitunneleid 10 20 2. Rohevõrgustiku sidusust näitavate indikaatorliikide arv. Näitaja / Aasta Algtase 2011 Sihttase 2020 53 Juhul, kui meetmed rakendatakse ÕVP stsenaariumis ettenähtud mahus, peaks sellega kaasnema transpordi valdkonna NOx heite vähenemine 2030. aastaks vähemalt 39%, SO2 heite vähenemine 86%, LOÜ heite vähenemine 64%, PM2.5 heite vähenemine 41% ning NH3 heite vähenemine 47%. Vähendamismeetmete efektiivsus ning saasteainete heite vähenemise efekt on saavutatav meetmete komplekssel rakendumisel, ainult mõne meetme rakendamine sellist ulatuslikku heidete vähenemist transpordi valdkonnast tõenäoliselt kaasa ei too. 54 Soovituslik eesmärk lineaarse vähenemiskava järgi 55 Jäätmearuandlusele tuginedes.  49 Indikaatorliikide arv 0 15 E.5. Vähendada transpordisektori, sh taristu mõju veekeskkonnale 1. Laevaõnnetuste ja ohtlike intsidentide koguarv on aastas alla viie (Merenduspoliitika laiendatud visioon) 2. Õlireostuse tagajärjel hukkunud lindude arv ei suurene taseme 2010 – 2012 suhtes (Merestrateegia meetmekava) 3. Eesti sadamaid külastavad laevad täidavad rahvusvahelistest konventsioonidest tulenevaid keskkonnanõudeid (BALEE-T35) - Kontrollitud laevade ja neil avastatud rikkumiste arvude suhe ( Mereala seireprogramm 2021 - 2026 (koostamisel)) E6.1. Leevendada transpordiga seotud müra mõju 1. Liiklusmürast mõjutatud inimeste arv 56 2035. aastal võrreldes 2017. aastaga Tallinnas, Tartus ja suurema liiklussagedusega maanteelõikudel ( Strateegiliste mürakaartide andmetel elas 2017.aastal üle 55 dB müratsoonides Tallinnas 57% elanikkonnast ja Tartus 51% elanikkonnast. 57). E.6.3. Vähendada liikluses (kõikide transpordiliikide lõikes) hukkunute ja raskelt vigastatute arvu 1. Maanteedel vigastatute ja hukkunute indikaator 58 8. Ülevaade KSH korraldusest ja avalikkuse kaasamisest Keskkonnamõju strateegiline hindamine viiakse läbi vastavalt Keskkonnamõju hindamise ja keskkonnajuhtimissüsteemi seaduse (KeHJS) nõuetele. KSH programm tunnistati nõuetele vastavaks 20.05.2020, programmi etapi protsessi on täpsemalt kirjeldatud programmi dokumendis (Lisa 1). 56 Hinnanguline ja lähima sajani ümardatud inimeste arv, kes asuvad mürapiirkonnas ehitistes, mille päeva-õhtu-öömüraindikaatori Lden arvsuurused ületavad 55 dB ning öömüraindikaatori Lnight arvsuurused ületavad 50 dB. 57 ENMAK 2030 KSH aruanne 58 Üldine indikaator on peatükis 3.2. Töötame 2021 -2022 välja detailse IRAP süsteemile sarnaneva indikaatori, kooskõlastades metoodikat ka Euroopa Komisjoni poolt samas ajaraamis välja töötatava indikaatoriga.  50 KSH koostamise ajaline kulg on kokkuvõtvalt esitatud tabelis 2. (Seejuures tuleb märkida, et tegevuste osas, mis pole veel toimunud, on tegemist prognoositava ajakavaga, mis võib protsessi vältel täpsustuda ja muutuda, vastavalt reaalsetele arengutele Arengukava ja KSH protsessis.) Tabel 2 KSH kokkuvõtlik ajakava Etapp Periood KSH algatamine 14.11.2019 KSH programmi koostamine Oktoober - november 2019 KSH programmi osas asjaomastelt asutuste seisukohtade küsimine Detsember 2019 KSH programmi täiendamine vastavalt asjaomaste asutuste seisukohtadele; parandatud ja Jaanuar - veebruar täiendatud KSH programmi kontroll 2020 KSH programmi avalik väljapanek ning avaliku arutelu läbiviimine Veebruar - märts 2020 KSH programmi kohta esitatud ettepanekute/vastuväidete arvestamise või Märts 2020 mittearvestamise põhjendused; KSH programmi täiendamine KSH programmi nõuetele vastavaks tunnistamine 20.05.2020 KSH aruande koostamine Juuni - august 2020 KSH aruande kontroll ja seisukohtade küsimine August - september 2020 Laekunud seisukohadele vastamine, KSH aruande täiendamine vastavalt asjaomaste Oktoober 2020 asutuste seisukohtadele KSH aruande avalik väljapanek ning avalik arutelu November 2020 KSH aruande kooskõlastamine ja nõuetele vastavuse kontrollimine Detsember 2020 KSH aruande nõuetele vastavaks tunnistamine 2021. aasta algus Vastavalt KSH programmile on isikud ja asutused, keda strateegilise planeerimisdokumendi alusel kavandatav tegevus võib eeldatavalt mõjutada või kellel võib olla põhjendatud huvi selle strateegilise planeerimisdokumendi vastu, järgmised:  Vabariigi Valitsus  Riigikantselei  Rahandusministeerium  Riigikogu  Majandus- ja Kommunikatsiooniministeerium  Arengukava koostamise juhtrühm  Arengukava koostamises osalevate töörühmade liikmed  Keskkonnaministeerium, Siseministeerium, Maaeluministeerium, Sotsiaalministeerium  Välisministeerium, Kaitseministeerium, Rahandusministeerium, Haridus- ja Teadusministeerium, Kultuuriministeerium  Keskkonnaamet  Valitsusvälised (ettevõtlusega ja keskkonnakaitsega tegelevad) organisatsioonid (sh Eesti Keskkonnaühenduste Koda, EAS) ja kodanikeühendused  Arengukava koostamisse kaasatud osapooled (keda pole eespool eraldi nimetatud)  Laiem avalikkus. Nimetatud osapooli teavitatakse ka KSH aruande avalikustamisest. Vastavalt seadusele  51 teavitatakse laiemat avalikkust kuulutusega ajalehes, Arengukava koostaja veebilehel ning väljaandes Ametlikud Teadaanded; huvitatud või mõjutatud institutsioone teavitatakse elektrooniliselt kirjaga. Seisukohtade küsimine Vastavalt KeHJS § 401 peab strateegilise planeerimisdokumendi koostamise korraldaja enne aruande avalikustamist küsima aruande sisu kohta seisukohta kõikidelt asjaomastelt asutustelt. Käesoleva aruande sisu osas küsitakse seisukohti järgmistelt asutustelt: Keskkonnaministeerium, Rahandusministeerium, Kaitseministeerium, Maaeluministeerium, Kultuuriministeerium, Siseministeerium, Sotsiaalministeerium, Keskkonnaamet, Lennuamet, Maanteeamet, Tarbijakaitse ja Tehnilise Järelevalve Amet ja Veeteede Amet. Aruannet täiendatakse vajadusel vastavalt laekunud seisukohtadele ning laekunud seisukohad lisatakse aruandele. 9. Kokkuvõte Käesolev keskkonnamõju strateegilise hindamise (KSH) aruanne on koostatud „Transpordi ja liikuvuse arengukavale 2021-2035“ (TLAK). „Transpordi ja liikuvuse arengukava 2021-2035“ koostatakse, kuna praegune "Transpordi arengukava 2014-2020“ kaotab kehtivuse 2020. aastal. Erinevalt eelmisest arengukavast on uuel Transpordi ja liikuvuse arengukaval tugevam fookus valdkondade ülesel koostööl, eriti kliimapoliitika ja energeetika eesmärkidega seoses. Arengukava põhieesmärgiks on tagada Eesti elanikele ja ettevõtetele mugavad, ohutud, kiired ja kestlikud liikumisvõimalused. Lisaks keskendutakse selles transpordivahendite ja -süsteemi keskkonnajalajälje vähendamisele. TLAK on koostatud strateegilise tasandi dokumendina ja sama täpsusastet on rakendatud ka käesoleva KSH puhul. Mõju hindamisel lähtuti Arengukava üldistustasandist ning kasutati strateegilisele tasandile vastavalt pigem kvalitatiivseid meetodeid (mitte transpordiprojektides kasutatavaid enam detailseid ja kvantitatiivseid meetodeid). Hinnangute ja soovituste andmiseks kasutati KSH-s kaht erinevat metoodilist lähenemist: vastavusanalüüsi ja välismõjude analüüsi. Vastavusanalüüsi läbi viimiseks koostati KSH käigus komplekt 6 sisult erineva keskkonnaeesmärgiga, koos toetavate alaeesmärkidega (strateegiliste keskkonnaeesmärkide taustast ja kujunemisest on põhjalikum ülevaade antud ptk 4 ning Lisas 2). Selle tulemusel sõnastatud strateegilised keskkonnaeesmärgid, millele vastavust analüüsiti, olid järgmised: 1. Vähendada transpordisektori mõju kliimamuutusele 1.1 Transpordisektori kasvuhoonegaaside heite konkurentsivõimeline vähendamine 1.2 Vähendada sundliikumiste vajadust 1.3 Saavutada tasakaalustatud nihe keskkonnahoidlike transpordiliikide suunas 1.4 Vähendada transpordisektori energiatarvet 1.5 Tõsta taastuvenergia osakaalu transpordisektori energia lõpptarbimises 2. Vähendada transpordiga seotud õhusaastet, eriti linnades  52 3. Kasutada transporditaristu uuendamisel loodusressursse säästlikult 4. Vähendada transpordisektori mõju bioloogilisele mitmekesisusele 5. Vähendada transpordisektori, sh taristu mõju veekeskkonnale 5.1 Vähendada koormust pinna- ja põhjaveele 5.2 Tagada keskkonnaohutu mereliiklus 6. Leevendada transpordisektori mõju inimese tervisele 6.1 Leevendada transpordiga seotud müra mõju 6.2 Vähendada õhusaaste kahjulikku mõju 6.3 Vähendada liikluses (kõikide transpordiliikide lõikes) hukkunute ja raskelt vigastatute arvu Välismõjude analüüsi (ptk 5) käigus analüüsiti Arengukava võimalikku mõju keskkonnale. Mõjude analüüs esitati keskkonnavaldkondade kaupa, analüüsi fookuse ja hinnangute paremaks mõistmiseks on alapeatükkide alguses esitatud sissejuhatusena olemasoleva olukorra kirjeldus ja valdkondlikud trendid (hindamiseks vajalikus ulatuses). Nii vastavusanalüüsi kui välismõjude analüüsi käigus esitati KSH poolt vajadusel läbivalt ettepanekud ja soovitused Arengukava täpsustamiseks, ebasoodsate mõjude leevendamiseks ja soodsate mõjude võimendamiseks. Soovitused on aruandes läbivalt tähistatud sümboliga → (mis võimaldab need lihtsasti leida vastava teemakäsitluse juures). Kokkuvõttes võib öelda, et Arengukava rakendamisega kaasnevad mõjud keskkonnale on tervikuna eeldatavalt pigem soodsad. Arengukava sisaldab palju põhimõtteid, mille järgimisel on võimalik liikuda keskkonnatingimuste parandamise ning ebasoodsate keskkonnamõjude vältimise ja vähendamise suunas. Samas tuleb ka välja tuua, et TLAK näol on tulenevalt selle strateegilisest tasandist tegemist võrdlemisi üldise dokumendiga. Selles kirjeldatud põhimõtete detailsemat kavandamist nähakse ette läbi erinevate programmide, tegevuskavade ja kohalike omavalitsuste koostatavate transpordi strateegiate (mis kõik ei ole osa käesolevast Arengukavast, vaid koostatakse eraldi). Seetõttu sisaldavad KSH-s esitatud hinnangud endas ka suurel hulgal määramatust. Reaalne areng ja mõjud hakkavad sõltuma pigem mitte niivõrd praeguses Arengukavas sisalduvatest positiivsetest põhimõtetest, vaid sellest, milliseid valikuid tehakse järgnevates etappides (mida mõjutavad suuresti ka Arengukava välised asjaolud, nagu rahaliste vahendite kättesaadavus, poliitiline tahe jms). KSH hinnangul ei tule prioriteedid edasiste (reaalset arengut suunavate) valikute tegemiseks Arengukava tekstist praegu üheselt välja. Sellest tulenevalt esitab KSH (peatükis 6) lisaks ka mõningad üldisemad, valdkondade ülesed ning pigem Arengukava ülesehitust ja fookust puudutavad ettepanekud, millele tähelepanu pöörata, et soodustada valdkonna arengut soodsas suunas ning vältida/leevendada transpordisektori ebasoodsaid mõjusid. Viimaks, peatükis 7 on esitatud KSH soovitused keskkonnamõjude ja arengute seireks kasutatavate indikaatorite osas.  Transpordi ja liikuvuse arengukava 2021-2035 keskkonnamõju strateegilise hindamise aruanne 10. LISAD Lisa 1. KSH programm koos lisadega  Transpordi ja liikuvuse arengukava 2021-2035 keskkonnamõju strateegilise hindamise aruanne Lisa 2. Ülevaade strateegilistest keskkonnaeesmärkidest ja -indikaatoritest Strateegiline Alameesmärk ja mõõdikud Seotud strateegiliste dokumentide eesmärgid Arengukava eesmärgid ja põhimõtted, mis aitavad tagada keskkonnaeesmärk eesmärgi täitmist 1. Vähendada 6.1 Transpordisektori kasvuhoonegaaside ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030: Kasvuhoonegaaside heite vähendamine on arengukava läbivaks transpordisektori mõju heite konkurentsivõimeline eesmärgiks, mille saavutamisele on suunatud valdav osa kliimamuutusele vähendamine  Võtta kiiresti meetmeid kliimamuutuste ja nende mõjuga võitlemiseks arengukava tegevusi ja põhimõtteid, mis on suunatud transpordi TLAK indikaator:  Tagada taskukohane, usaldusväärne, säästev ja kaasaegne energia kõikidele. nõudluse vähendamisele, autokasutuse vähenemisele ja  Toetada jätkusuutlikku, kaasavat ja säästvat majandusarengut ning tagada kõikidele säästlikumaks muutmisele, samuti kõik ühistranspordi ja  Transpordi CO2e vähendamine 13% vrdl inimestele inimväärne töö. aktiivsete liikumisviiside edendamiseks ette nähtud tegevused ja 2005. aastaga 2030. aastal või EL  Ehitada vastupidav taristu, toetada kaasavat ja säästvat industrialiseerimist ning põhimõtted. Samas on arengukavas sisalduvad põhimõtted transpordipoliitika valge raamatu tase innovatsiooni. pigem suunda näitavad ja ei sisalda konkreetseid meetmeid (1720 kt CO2e 59). Täpsustub (karmistub)  Muuta linnad ja asulad kaasavaks, turvaliseks, vastupidavaks ja säästvak s. soovitud olukorra, sh autotranspordi piiramiseks ent sisaldab  Tagada säästev tarbimine ja tootmine. konkreetseid eesmärke maanteeliikluse mugavuse ja kiiruse septembris 2020, kui EK tuleb välja uue ESR suurendamiseks (Alaeesmärk 5.2. Ohutud teed). kohustuse ettepanekuga kliimaseaduse ja roheleppe valguses. Lineaarsel KHG Euroopa roheline kokkulepe: Täpsemaid arengukavas toodud tegevused ja eesmärgid: vähendamisel, kui võtta eesmärgiks EL  Kõrgemate ELi kliimaeesmärkide seadmine 2030. ja 2050. Aastaks  CO2e heite vähendamise 60 poliitika. Eesmärgiks on roheleppe trajektoor -90% KHG transpordis  Säästvale ja arukale liikuvusele ülemineku kiirendamine transpordivahendite keskkonnajalajälje vähendamine. aastaks 2050, oleks transpordisektori 2035. Maanteetranspordi keskkonnajalajälje vähendamiseks a sihttase 1350 kt CO2e ehk 38% võrra kehtestatakse teekasutustasud läbisõidu ja taristu Euroopa Liidu Säästva arengu strateegia - Kaotada seos majanduskasvu ja transpordi nõudluse koormuse alusel. Aktsiisi- ja maksupoliitikas lähtutakse vähenemine võrreldes 2018. aasta vahel eesmärgiga vähendada sellest keskkonnale tulenevat mõju: saastaja maksab põhimõttest ning maksustatakse tasemega. kütuseid vastavalt nende eriheitele ja energiasisaldusele.  Saavutada transpordisektoris energiakasutuse jätkusuutlik tase ning vähendada Tarvilik on võtta kasutusele madala süsinikusisaldusega Seostuvad indikaatorid: transpordiga seotud kasvuhoonegaaside heitkoguseid. kütused kõikides transpordiliikides, et saavutada  Saavutada tasakaalustatud nihe keskkonnahoidlike transpordiliikide suunas, et energiasäästu 61 eesmärke. Ülevaade ÜRO tegevuskava 2030 elluviimisest kujundada välja säästev transpordi ja liikuvuse süsteem. Eestis  Kaubaveos 62 eelisarendatakse mere- ja raudteevedu 63 kui Konkurentsivõimeline vähese CO2-heitega majandus aastaks 2050 - Euroopa Parlament: toetab kõige energiatõhusamaid kaugveoliike ning kujundatakse  Transpordisektori kasvuhoonegaasid komisjoni tegevuskava nõuet, et transpordisektori kasvuhoonegaaside heidet tuleks 2050. ökonoomset kaubavedu võimaldavat multimodaalset 2019. aastal 2405 tuh t CO2 ekv. aastaks vähendada 1990. aastaga võrreldes 60%; taristut. Kaupade liikumine läbi Eesti võimaldab ettevõtetel pakkuda oma klientidele kõrgema Eesti 2035+ strateegia lisandväärtusega 64 teenuseid kui vaid transiit.  Kasvuhoonegaaside summaarne Vastupidava energialiidu ja tulevikku suunatud kliimamuutuste poliitika raamstrateegia:  Transporditaristut kavandatakse selliselt, et see oleks mugav, ligipääsetav ja ohutu nii 8- kui ka 80-aastasele heitkogus CO2: ekvivalenttonnides 17,9  Komisjon hakkab edendama saastaja maksab ja kasutaja maksab põhimõtetel inimesele 65 . Läbivalt pööratakse taristu rajamisel mln t CO2 ekv (2018) sihttase 2035 8 mln põhinevaid teetasude kavasid ja suurendab jõupingutusi, et luua autopargi tähelepanu ka kvaliteetse ruumi loomisele, et avalik t CO2 ekv CO2 transpordisektoris 2442,6 optimaalsemal kasutusel põhinev ühtne Euroopa transpordipiirkond. Lisaks võtab ruum ja teenused oleksid kõikidele inimestele olenemata vanusest ja füüsilistest eripäradest 59 EL Transpordipoliitika valge raamat 2011 seab eesmärgiks vähendada transpordi kasvuhoonegaase 2030. aastaks 20% võrra v õrreldes 2008. aastaga. Eesti 2008. a transpordi CO2 heide oli ca 2150 kt CO2e. St 20% vähenemine tähendab sihttaset 1720 kt CO2e 2030. aastal. ESR kohustus samaks aastaks on (n.ö solidaarne teiste ESR sektoritega) 1832 kt CO2e. 60 Jagatud kohustuse otsuse alusel, 406/2009/EÜ. 61 Energiatõhususe direktiivi alusel, 2012/27/EL. 62 Sh riigisiseselt. 63 Roheleppe eesmärk 75% vedusid suunata maanteelt raudteele või merele. 64 Nt täiendav töötlemine, komplekteerimine, ümberpakkimine jne. Arendades transiitkaupade tööt lemisega seotud tööstust ja teenuseid loome uusi ärimudeleid, täiendavaid töökohti, meelitame lisainvesteeringuid, misläbi su ureneb ka maksude laekumine riigile. 65 8-80 linnaplaneerimise printsiip, kooskõlas ligipääsetavuse direktiiviga 2019/882  55 kt CO2 ekv (2017) väheneb 23–38% komisjon täiendavaid meetmeid süsinikdioksiidiheite vähendamiseks ligipääsetavad (sh teed ja tänavad, (täpsustub esimesel võimalusel) transpordisektoris, mille aluseks on endiselt põhimõt teliselt naftatooted. ühistranspordipeatused ja sõlmpunktid, [ühistranspordi] sõiduvahendid) ning mugavad ja meeldivad kasutada. See eeldab teenusedisaini ning ligipääsetavuse ja Eesti keskkonnastrateegia aastani 2030 Euroopa ühtse transpordipiirkonna tegevuskava – Konkurentsivõimelise ja ressursitõhusa universaalse disaini põhimõtete rakendamist transpordisüsteemi suunas (2011): transpordipoliitika loomuliku osana, seades esikohale  Transpordivahenditest tulevad avaliku sektori eeskuju. kasvuhoonegaasiheitmed (CO2  Vähendada nn tavakütusel töötavate autode osakaalu poole võrra 2030. aastaks; järk - ekvivalenttonni)↓; baastase 2 157 000 järgult kõrvaldada need linnaliiklusest 2050. aastaks; suuremates linnakeskustes peaks  Lähtume Eesti transpordisüsteemi arendamisel CO2 ekvivalenttonni; 2030. aastaks olemas olema põhimõtteliselt CO2-heiteta logistikasüsteem . terviklike (transpordi)koridoride loogikast ja eri  Vähest CO2-heidet tekitavate keskkonnasäästlike kütuste osakaal peab lennunduses transpordiliikide vahelisest mugavast ühilduvusest. suurenema 40 %ni 2050. aastaks; samuti vähendada ELis 2050. aastaks Linnadevaheliste (sh suuremate tõmbekeskuste Eurostat merendussektoris punkrikütustega kaasnevat CO2 -heidet 40 % (võimaluse korral 50 % vaheliste) ühenduste arendamisel vaadatakse  Average CO2 emissions per km from new ). maanteearendusi koos raudteeühendustega (kus passenger cars (source: EEA, DG CLIMA) võimalik, seal ka teiste transpordiliikidega) ja Euroopa vähese heitega liikuvuse strateegia: kaalutakse iga kord läbi paralleelsete transpordiliikide arendamise otstarbekus. Konkurentsivõime kava „Eesti 2020“  Vähese heitega alternatiivenergia tõhus raamistik;  Transpordisüsteemi arendamisel ja  Kasvuhoonegaaside heitkoguste investeerimisotsuste langetamisel järgitakse Rootsi ja piirmäär võrreldes 2005. aasta Euroopa Parlamendi ja nõukogu määrus (EL) 2019/631, 17. aprill 2019, millega kehtestatakse Soome transpordiametite eeskujul nn 4 -astme printsiipi tasemega, baastase 6286 tuh t (2005), uute sõiduautode ja uute väikeste tarbesõidukite CO2 -heite normid, et aidata saavutada  Vähendame transporditaristu ökoloogilist jalajälge ja määruses (EL) 2018/842 sätestatud liidu eesmärki vähendada oma kasvuhoonegaaside heidet ja vahetase 6346 tuh t (2015), sihttase kohaneme kliimamuutustega Pariisi kokkuleppe eesmärke ning tagada siseturu nõuetekohane toimimine: 6024 tuh t (2020)  Transporditaristu kavandamisel juhindutakse kasutaja  Käesoleva määrusega kehtestatakse alates 1. jaanuarist 2020 liidus registreeritud uute maksab põhimõttest sõiduautode ELi sõidukipargi keskmise CO2 -heite sihttase 95 g/km ja liidus  Tõstame raudtee linnadevahelisi kiiruseid aegruumiliste registreeritud uute väikeste tarbesõidukite ELi sõidukipargi keskmise CO2-heite sihttase vahemaade vähendamiseks ning parandame ohutust, et 147 g/km. kasvatada raudteetaristu kasutust. Suuname nii reisi - kui ka kaubaliiklust maanteelt raudteele. Suurendame Kliimapoliitika põhialused: raudtee intensiivsema kasutamise juures selle positiivset mõju keskkonnale.  Eesti pikaajaline siht on vähendada kasvuhoonegaaside heidet ligi 80 protsenti aastaks 2050 võrreldes 1990. aasta heitetasemega. Selle sihi suunas liikumisel tuleb Võimalikud vastuolud eesmärgi saavutamisele: kasvuhoonegaaside heidet vähendada 2030. aastaks orienteerivalt 70 protsenti ja  Rahvusvahelise logistika sektori kasvu toetamiseks on 2040. aastaks 72 protsenti võrreldes 1990. Aasta heitetasemega. Aastaks 2050 1.08 vajalik arendada transpordi taristut selliselt, et see oleks KHG, mln t CO2 ekv piisava läbilaskevõimega ning kulutõhus  5.2 Arendame maanteid, et muuta liiklemist Riigi eelarvestrateegia 2020-2023: mugavamaks, vähendada aegruumilisi vahemaid ja tõsta liiklemise ohutust. Ehitame kolmes põhisuunas (Tallinna -  Tagada jätkusuutlik, ohutu, turvaline, juurdepääseta v, kaasav, kiire ja tehnoloogiliselt Tartu, Tallinna-Narva, Tallinna-Pärnu) välja nutikad ja uuenduslik transpordisektor ja taristu, mis suurendab Eesti kodanike heaolu ning ohutud maanteed, et vähendada linnadevahelisi edendab nende liikuvusvõimalusi, toetab konkurentsivõimelist ja tõhusat logistikat ning aegruumilisi vahemaid ja tõsta liiklusohutust. Jätkatakse aitab kaasa Eesti majanduse konkurentsivõime suure ndamisele. põhimaanteede arendamisega lähtudes eelkõige liiklusohutusest ning nõudlusest  Esimesteks prioriteetideks transpordi taristu ja teenuste arendamisel on ohutus (nt kiiruste vähendamine, sõiduradade eraldamine, ohutud peatus- ja puhkekohad jmt) ja keskkonnahoid (sh taristu hooldel), millele järgnevad transpordisüsteemi kogukulud jm faktorid, mis  56 omavad potentsiaalset autostumist kahandavat mõju ning erinevate liikumisviiside ühendusaeg 6.2 Vähendada sundliikumiste vajadust ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030 Otseselt eesmärgi täitmiseks arengukavas otseseid TLAK indikaator: rakendatavaid meetmeid kavandatud ei ole. Sundliikumiste  Suurendada 2030. aastaks kaasavat ja jätkusuutlikku linnastumist ning osalemist vähendamist toetavad tegevused ja põhimõtted, mis on suunatud  Hea ühistransporditeenuse võimaldava, tervikliku ja jätkusuutliku inimasustuse planeerimise ja haldamise erinevate teenuste paremale kättesaadavusele eeskätt läbi teenindusalas paiknevate elu- ja suutlikkust kõikides riikides. maakasutuse kompaktse ja mitmekesise planeerimise ning töökohtade osakaal 66  Võtta kiiresti meetmeid kliimamuutuste ja nende mõjuga võitlemiseks sihtkohtade inimestele lähemale toomise. Viimast on võimalik  Muuta linnad ja asulad kaasavaks, turvaliseks, vastupidavaks ja säästvaks. hästi saavutada ka läbi paremate liikumisvõimaluste ja aegruumiliste vahemaade vähendamise kaudu. Seega aitavad Seostuvad indikaatorid: sundliikumiste vähendamisele kaasa arengukavas toodud Euroopa roheline kokkulepe – Säästvale ja arukale liikuvusele ülemineku kiirendamine transporditaristu parema planeerimise põhimõtted. Eesti keskkonnastrateegia aastani 2030:  Elanike osatähtsus, kelle lähim Eesti säästva arengu riiklik strateegia Säästev Eesti 21 - Saastumise vähendamine. ühissõidukipeatus on kaugemal kui 0,5 Täpsemaid arengukavas toodud tegevused ja eesmärgid: kilomeetrit (%)↓, baastase: 10 %;  Transporditaristut kavandatakse selliselt, et see oleks Energiamajanduse arengukava aastani 2030: Eesti 2035+ strateegia: mugav, ligipääsetav ja ohutu nii 8- kui ka 80-aastasele inimesele 67 . Läbivalt pööratakse taristu rajamisel  Transpordinõudlus sõiduautode  Elukeskkond on kõigi vajadusi arvestav, ligipääsetav, kultuurne ja turvaline tähelepanu ka kvaliteetse ruumi loomisele, et avalik kasutamisel võrreldes 2010. aastaga, % ruum ja teenused oleksid kõikidele inimestele Sihttase 2030- <5% Eesti keskkonnastrateegia aastani 2030: olenemata vanusest ja füüsilistest eripäradest ligipääsetavad (sh teed ja tänavad, Kliimamuutustega kohanemise arengukava  Arendada välja efektiivne, keskkonnasõbralik ja mugav ühistranspordisüsteem, ohutu ühistranspordipeatused ja sõlmpunktid, [ühistranspordi] aastani 2030: kergliiklus (muuta auto alternatiivid mugavamaks) ning sundpendelliiklust ja sõiduvahendid) ning mugavad ja meeldivad kasutada. See eeldab teenusedisaini ning ligipääsetavuse ja maanteevedusid vähendav asustus- ja tootmisstruktuur (vähendada  Transpordisüsteemi kasutajate rahuolu universaalse disaini põhimõtete rakendamist transpordivajadust). transpordipoliitika loomuliku osana, seades esikohale indeks: algtase 4,47 (2012) > sihttase 4,8 (2030) avaliku sektori eeskuju. 2.  Liikuvusteenuste kujundamisel arvestatakse rahvastiku Kliimapoliitika põhialused aastani 2050: vanuse ja arvuga, elupiirkondade asustustihedusega, liikuvusnõudluse, sihtkohtade ning mahtudega, et  15. Vähendatakse sundliikumise ja isiklikust autost sõltuvuse vajadust hästi pakkuda sobivat, vajadustest lähtuvalt teenust. integreeritud asustuse ja transpordikorralduse planeerimise kaudu. Ennustamatu või ebaregulaarse nõudluse korral võimaldatakse Eesti siseselt ka graafikupõhisele Riigi eelarvestrateegia 2020-2023: ühistranspordile alternatiivne, nt nõudepõhise transporditeenuse pakkumist. See tagab võimaluse  Tagada jätkusuutlik, ohutu, turvaline, juurdepääsetav, kaasav, kiire ja tehnoloogiliselt inimestel liikuda just siis, kui teenust vajatakse. uuenduslik transpordisektor ja taristu, mis suurendab Eesti kodanike heaolu ning  Nutikas ja andmetel põhinev taristu planeerimine , mis edendab nende liikuvusvõimalusi, toetab konkurentsivõimelist ja tõhusat logistikat ning on seotud jätkusuutliku maakasutusega ja aitab kaasa Eesti majanduse konkurentsivõime suurendamisele. transpordikorraldusega on osa edukast transpordipoliitikast. Hästi läbimõeldud ruumiotsused, eelkõige tiheasustusega piirkondades, ning nendest tulenev kvaliteetne ruumiline keskkond ja transporditaristu aitavad parendada inimeste heaolu ja vähendada negatiivset mõju tervisele ning keskkonnale, toetades ka majanduse arengut. Taristu planeerimisel 66 Metoodika on koostöös Maanteeametiga väljatootamisel. 67 8-80 linnaplaneerimise printsiip, kooskõlas ligipääsetavuse direktiiviga 2019/882  57 kaalutakse ka digitaalseid alternatiive (nt ummikute vähendamiseks juhtida liiklust nutikamalt).  5.1 Paremini ühendatud ja hästi toimiv ühistransport: Selleks, et meie linnapiirkondades eelistataks säästvamaid liikumisviise tuleb suurendada ühistranspordi teenindusareaali ehk viia teenus inimestele lähemale ja ühendada peatused paremini teenustega (nt arstiabi, kaubanduskeskuste, lasteaedade, koolide (sh huviringide) ning elu- ja töökohtadega). Samuti on oluline tervikliku/liikideülese planeerimise abil parandada erinevate (ühis)transpordiliikide vahelist koostoimet (nt rongid, bussid, regionaalne ühistransport, jalgratta või kergliikuri jagamisteenused jmt).  6. Liikuvus kui teenus. Üleriigiline, ühendatud ühistransport. Toome ühistranspordi kasutamise inimestele lähemale ja muudame selle kasutamise mugavamaks läbi selle targema planeerimise ning nutikama piletimüügikorralduse 6.3 Saavutada tasakaalustatud nihe ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 20 30 – Otseselt eesmärgi täitmiseks on Arengukavas ette nähtud keskkonnahoidlike transpordiliikide eesmärk 6. Liikuvus kui teenus. Üleriigiline, ühendatud suunas  Võtta kiiresti meetmeid kliimamuutuste ja nende mõjuga võitlemiseks ühistransport ja alaeesmärk 5.1 Keskkonnasäästlik liikuvus linnas TLAK indikaator:  Muuta linnad ja asulad kaasavaks, turvaliseks, vastupidavaks ja säästvaks. ja linnakeskkond. Eesmärgi saavutamisele aitavad osaliselt kaasa  Tagada säästev tarbimine ja tootmine. kõik arengukavas sisalduvad tegevused ja põhimõtted, mis on  TT230 hõivatud soo ja töölkäimise viisi suunatud autokasutuse vähenemisele ja säästlikumaks järgi: ÜT, jalgsi ja rattaga osakaalude muutmisele, samuti kõik ühistranspordi ja aktiivsete Euroopa roheline kokkulepe – tasemed - 38,% [2020]; 45% [2025]; liikumisviiside edendamiseks ette nähtud tegevused ja 53% [2030] 55% [2035].  Kõrgemate ELi kliimaeesmärkide seadmine 2030. ja 2050. Aastaks põhimõtted.  Reiside arv transpordiliigiti  Säästvale ja arukale liikuvusele ülemineku kiirendamine linnapiirkondades: jalgsi, jalgrattaga ja ühissõidukitega (bussi, trammi, Täpsemaid arengukavas toodud tegevused ja eesmärgid: Euroopa Liidu Säästva arengu strateegia - Kaotada seos majanduskasvu ja transpordi nõudluse rongiga) töölkäijate osakaal 70% ning vahel eesmärgiga vähendada sellest keskkonnale tulenevat mõju.  Liikuvusteenuste kujundamisel arvestatakse rahvastiku autoga 30% 68 vanuse ja arvuga, elupiirkondade asustustihedusega,  Saavutada tasakaalustatud nihe keskkonnahoidlike transpordiliikide suunas, et liikuvusnõudluse, sihtkohtade ning mahtudega, et Seostuvad indikaatorid: kujundada välja säästev transpordi ja liikuvuse süsteem. pakkuda sobivat, vajadustest lähtuvalt teenust. ÜRO TEGEVUSKAVA 2030, Säästva arengu 4. Ennustamatu või ebaregulaarse nõudluse korral näitajad: Vastupidava energialiidu ja tulevikku suunatud kliimamuutuste poliitika raamstrateegia: võimaldatakse Eesti siseselt ka graafikupõhisele ühistranspordile alternatiivne, nt nõudepõhise  9.5.1. Rongisõitjate osatähtsus maismaa  Komisjon hakkab edendama saastaja maksab ja kasutaja maksab põhimõtetel transporditeenuse pakkumist. See tagab võimaluse sõitjateveos, % 2,0 2,3 (2017) põhinevaid teetasude kavasid ja suurendab jõupingutusi, et luua autopargi inimestel liikuda just siis, kui teenust vajatakse.  9.5.2. Sõiduautoga sõitjate osatähtsus optimaalsemal kasutusel põhinev ühtne Euroopa transpordipiirkond. Lisaks võtab  Nutikas ja andmetel põhinev taristu planeerimine , mis maismaa sõitjateveos, % 80,1 80,5 komisjon täiendavaid meetmeid süsinikdioksiidiheite vähendamiseks on seotud jätkusuutliku maakasutusega ja (2017) transpordisektoris, mille aluseks on endiselt põhimõtteliselt naftatooted. transpordikorraldusega on osa edukast  9.5.3. Bussi- ja trollisõitjate osatähtsus 5. transpordipoliitikast. Hästi läbimõeldud ruumiotsused, maismaa sõitjateveos, % 17,9 17,3 eelkõige tiheasustusega piirkondades, ning nendest Euroopa vähese heitega liikuvuse strateegia: (2017) tulenev kvaliteetne ruumiline keskkond ja  9.5.4. Raudteeveo osatähtsus maismaa  Digitaalsed liikuvuslahendused; Õiglane ja tõhus transpordihinna kujundus; transporditaristu aitavad parendada inimeste heaolu ja Mitmeliigilise transpordi edendamine; vähendada negatiivset mõju tervisele ning keskkonnale, kaubaveos, % 42,9 46,2 (2018) toetades ka majanduse arengut. Taristu planeerimisel 68 Tallinna säästva liikuvuse arengukava Tallinna ühistransport+ stsenaarium  58  9.5.5. Maanteeveo osatähtsus maismaa 6. kaalutakse ka digitaalseid alternatiive (nt ummikute kaubaveos, % 57,1 53,8 (2018) vähendamiseks juhtida liiklust nutikamalt). Linnalise liikuvuse pakett:  Ühissõidukiga, jalgrattaga ja jalgsi  Jagatud liikuvuse edendamine. Eesmärgiks on säästvat töölkäijate osatähtsus, 38,8% (2019)  Jätkab eelneva Rohelise raamatu peamiste teemadega. ELi linnade põhiülesanne on arengut toetavate väärtushinnangute kujundamine ja tagada säästvamate linnaliikuvusviiside edukas kasutuselevõtt. teadlikkuse tõstmine ning nendele põhimõtetele Eesti 2035+ strateegia 7. vastavate liikuvusvõimaluste arendamine. Autoliiklusele Euroopa Parlamendi ja nõukogu määrus (EL) 2019/631, 17. aprill 2019, millega kehtestatakse suunatud teede eelisarendamine võib olla põhjendatud  Ühissõiduki, jalgrattaga või jala tööl uute sõiduautode ja uute väikeste tarbesõidukite CO2-heite normid, et aidata saavutada hajaasustusega piirkondades, kus ühistranspordi käivate inimeste osakaal 38,5% (2018) ühendusi või kergliiklusteid pole mõistlik luua või määruses (EL) 2018/842 sätestatud liidu eesmärki vähendada oma kasvuhoonegaaside heidet ja 45–55% (täpsustub esimesel võimalusel) Pariisi kokkuleppe eesmärke ning tagada siseturu nõuetekohane toimimine. Käesoleva puuduvate otseühenduste loomiseks. Sealjuures on Eesti keskkonnastrateegia aastani 2030 määrusega kehtestatakse alates 1. jaanuarist 2020 liidus registreeritud: oluline ka suunata autokasutajaid reise jagama. Riigi roll on olla suunanäitaja ning andmete pakkuja erasektorile  Hõivatute osatähtsus, kes läheb tööle  Uute sõiduautode ELi sõidukipargi keskmise CO2-heite sihttase 95 g/km erinevate liikuvusteenuste arendamiseks. jalgsi või jalgrattaga (%) ↑, baastase:  Liidus registreeritud uute väikeste tarbesõidukite ELi sõidukipargi keskmise CO2 -heite  Arendame transpordisüsteemi säästvalt. Taristu ja 27,2%; sihttase 147 g/km. 8. teenuste arendamise planeerimisel tuleb arvestada ka  Hõivatute osatähtsus, kes kasutab tööle seda, kui palju panustab kavandatav investeering säästva jõudmiseks ühistransporti (%) ↑, Eesti säästva arengu riiklik strateegia Säästev Eesti 21: liikuvuse arendamisse (nt kui palju vähendab see baastase: 29,9%;  Saastumise vähendamine. keskkonnakoormust, suurendab ühistranspordi  Hõivatute osatähtsus, kes kasutab tööle kasutajate arvu, toetab rohelist logistikat 69 ), millised jõudmiseks isiklikku või ametiautot võimalused loob investeering liikumisviiside ülesteks (%)↓baastase: 39,5%. Eesti 2035+ strateegia: muutusteks (erinevate transpordiviiside kombineerimise Energiamajanduse arengukava aastani 2030  Elukeskkond on kõigi vajadusi arvestav, ligipääsetav, kultuurne ja turvaline soodustamine) ning võimalikku sotsiaalmajanduslikku mõju (kui palju panustab investeering nt tööstusalade ja  Transpordinõudlus sõiduautode elupiirkondade ühenduse parandamisse, liikuvusvaesuse kasutamisel võrreldes 2010. aastaga, % Eesti keskkonnastrateegia aastani 2030: ja autost sõltuvuse vähendamisse) Sihttase 2030- <5%  Arendada välja efektiivne, keskkonnasõbralik ja mugav ühistranspordisüsteem, ohutu  Transpordisüsteemi arendamisel ja  Ühistranspordi kasutuse osakaal kergliiklus (muuta auto alternatiivid mugavamaks) ning sundpendelliiklust ja investeerimisotsuste langetamisel järgitakse Rootsi ja töölkäijatest aastaks 2020 22,9 (2013) maanteevedusid vähendav asustus- ja tootmisstruktuur (vähendada Soome transpordiametite eeskujul nn 4-astme printsiipi Sihttase 2020 ≥25% 3. transpordivajadust).  Transporditaristu kavandamisel juhindutakse kasutaja Eurostat: maksab põhimõttest  Kättesaadavam transporditeenus tänu intelligentsetele  Share of busses and trains in total lahendustele. passenger transport  Transporditaristu toimimine erandlikes olukordades.  Share of rail and inland waterways in  Innovatsiooni soodustava õigusruumi kujundamiseks ja total freight transport kiireks muutustele reageerimiseks, tuleb rakendada niinimetatud regulatiivset liivakasti, mis pakub tähtajaliselt kokkulepitud kontekstis erandeid uudsete lahenduste liikluses/ elukeskkonnas katsetamiseks, mida ei ole veel reguleeritud.  5.1 Kujundame linnalise liiklusruumi säästliku liikumise jaoks sobivaks (sh ehitame rattateid, kergrööbastransporti ja multimodaalseid sõlmpunkte, et suurendada säästvate liikumisviiside osakaalu, ning viime ühistranspordi nullheitele, et vähendada transpordi keskkonna jalajälge. 69 Rohelises logistikas tõstetakse tarneahela efektiivsust ja võimalike korduvkasutatavate materjalide osas valitakse kvaliteetsed ja keskkonda säästvad lahendused, sh eelist atakse keskkonnasõbralike transpordivahendite, seadmete ja transpordipakendite kasutusele võtmist.  59  Paremini ühendatud ja hästi toimiv ühistransport  Ülejäänud liiklusest eraldatud ühistranspordi koridoride 70 arendamist  tuleb välja arendada kasutajasõbralikud, funktsionaalsed ja ohutud rattateede võrgustikud linnapiirkondades  Transpordisüsteemi planeerimisel tuleb läbivalt kõikides planeerimistasandites ja asutustes (nii riigi kui kohaliku omavalitsuse (KOV)) arvestada erinevate liikumisviiside prognoositud nõudlust, kuid lähtuda tuleb põhimõttest, et riik saab vajadusel nõudlust suunata vastavalt seatud arengueesmärgile, nt ühendusaja, majandusliku - või keskkonnakulu vähenemiseks.  6. Liikuvus kui teenus. Üleriigiline, ühendatud ühistransport. Toome ühistranspordi kasutamise inimestele lähemale ja muudame selle kasutamise mugavamaks läbi selle targema planeerimise ning nutikama piletimüügikorralduse 6.4 Vähendada transpordisektori ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030 – Energiakasutuse piiramisele aitavad osaliselt kaasa kõik energiatarvet Arengukavas sisalduvad tegevused ja põhimõtted, mis on TLAK indikaator:  Võtta kiiresti meetmeid kliimamuutuste ja nende mõ juga võitlemiseks suunatud transpordi nõudluse vähendamisele, lisaks ka  Tagada taskukohane, usaldusväärne, säästev ja kaasaegne energia kõikidele. tegevused ja põhimõtted, mis on suunatud autokasutuse  Transpordi energiakulu ei kasva ja jääb  Tagada säästev tarbimine ja tootmine. vähenemisele ja säästlikumaks muutmisele, ja ka kõik 33 500 TJ tasemele. ühistranspordi ja aktiivsete liikumisviiside edendamiseks ette  Tonn-km % transpordiliigi lõikes Euroopa roheline kokkulepe – nähtud tegevused ja põhimõtted. Samas on arenguka vas (maantee ja raudtee) – kaubaveo sisalduvad põhimõtted pigem suunda näitavad ja ei sisalda modaalnihke mõõtmiseks  Säästvale ja arukale liikuvusele ülemineku kiirendamine konkreetseid meetmeid soovitud olukorra, sh autotranspordi piiramiseks ent sisaldab konkreetseid eesmärke maanteeliikluse energiatõhusamale veoliigile. mugavuse suurendamiseks (eeskätt alaeesmärk 5.2. Ohutud Euroopa Liidu Säästva arengu strateegia - Kaotada seos majanduskasvu ja transpordi nõudluse teed). Seega jääb oht, et ühistranspordi tingimuste paranemise vahel eesmärgiga vähendada sellest keskkonnale tulenevat mõju. kõrval suureneb endiselt ka autokasutus ning transpordisektori Seostuvad indikaatorid: energiakulu.  Saavutada transpordisektoris energiakasutuse jätkusuutlik tase ning vähendada Eesti keskkonnastrateegia aastani 2030: transpordiga seotud kasvuhoonegaaside heitkoguseid.  Veokite tühivedude osakaal Täpsemaid arengukavas toodud tegevused ja eesmärgid: koguvedudest (%) ↓; baastase 21%. Euroopa ühtse transpordipiirkonna tegevuskava – Konkurentsivõimelise ja ressursitõhusa  CO2e heite vähendamise 71 poliitika. Eesmärgiks on  Ühistranspordi reisijatekäive transpordisüsteemi suunas (2011): transpordivahendite keskkonnajalajälje vähendamine. (sõitjakilomeetrit aastas)↑;  Mitmeliigiliste logistikasüsteemide toimimise optimeerimine, sealhulgas olemuselt Maanteetranspordi keskkonnajalajälje vähendamiseks  Kaubavedude käive ↓: kehtestatakse teekasutustasud läbisõidu ja taristu ressursitõhusamate transpordiliikide laialdasem kasut amine  Fossiilsete kütuste kasutamine koormuse alusel. Aktsiisi- ja maksupoliitikas lähtutakse  (3) - 30 % maantee-kaubavedudest, mis on pikemad kui 300 km, tuleks asendada muude transpordis (kilogrammi saastaja maksab põhimõttest ning maksustatakse transpordiliikidega, nt raudtee- või veetranspordiga 2030. aastaks ja üle 50 % kütuseid vastavalt nende eriheitele ja energiasisaldusele. naftaekvivalenti elaniku kohta)↓, kõnealustest vedudest tuleks asendada muude transpordiliikidega 2050. aastaks; sellist Tarvilik on võtta kasutusele madala süsinikusisaldusega baastase 387,7 kilogrammi/elaniku üleminekut soodustaksid tõhusad ja keskkonnasäästlikud kaubaveokoridorid. Selle kütused kõikides transpordiliikides, et saavutada kohta; energiasäästu 72 eesmärke. eesmärgi saavutamiseks on vaja ka infrastruktuuri asjakohaselt arendada. 70 Sh võimalusel terve koridori ulatuses. 71 Jagatud kohustuse otsuse alusel, 406/2009/EÜ. 72 Energiatõhususe direktiivi alusel, 2012/27/EL.  60  Üle kümne aasta vanuste autode osakaal  Kaubaveos 73 eelisarendatakse mere- ja raudteevedu 74 kui registreeritud sõiduautodest (%)↓, kõige energiatõhusamaid kaugveoliike ning kujundatakse Kliimapoliitika põhialused aastani 2050: ökonoomset kaubavedu võimaldavat multimodaalset baastase: 68,7%; taristut. Kaupade liikumine läbi Eesti võimaldab  Edendatakse energiasäästlikku liikluskultuuri. ettevõtetel pakkuda oma klientidele kõrgema Energiamajanduse arengukava aastani 2030 lisandväärtusega 75 teenuseid kui vaid transiit.  Ökonoomsete (energiaklass A-C) Energiamajanduse arengukava aastani 2030:  Tasakaalustatud veondussektori areng: sõidukite osakaal uute sõidukite  Primaarenergia tõhusam kasutuse alaeesmärk – Eesti energiavarustus ja -tarbimine on Transporditaristu kulude katmiseks ja keskkonnaalaste soetamisel aastaks 2020. Baastase 36% säästlikum eesmärkide saavutamiseks rakendatakse (2011); Sihttase 2020 ≥50% veondussektorile teekasutustasusid.  Sõidukipargi kütusekulu, Baastase TWh Keskkonnasõbralikele transpordivahenditele üleminekut 8,3 (2010); Sihttase 2030 8,3 soodustatakse nt heitevabadele kütustele soodustuste tegemisega, aga ka muude poliitiliste instrumentidega. Kliimapoliitika põhialused aastani 2050:  Sõiduautode ökonoomsus GWh/mln reisija-km: baastase 0,44 (2013); aastaks 2030 KPP1 stsenaarium(teadmistepõhine) -14,1%, KPP2(optimeeritud teadmistepõhine) - 10,0%; aastaks 2050 KPP1 -57,7%, KPP2 -40,0%  Busside ökonoomsus GWh/mln reisija - km: baastase 0,18 (2013); aastaks 2030 KPP1 -30,8%, KPP2 -20,1%; aastaks 2050 KPP1 -45,9%, KPP2 -30,0%  Rongide ökonoomsus GWh/mln reisija - km: baastase 0,24 (2013); aastaks 2030 KPP1 -49,2%, KPP2 -49,2%; aastaks 2050 KPP1 -53,4%, KPP2 -53,4%  Veoautode ökonoomsus GWh/mln reisija-km: baastase 0,24 (2013); aastaks 2030 KPP1 -49,2%, KPP2 -49,2%; aastaks 2050 KPP1 -53,4%, KPP2 -40%  Kaubarongide ökonoomsus GWh/mln reisija-km: baastase 0,05 (2013); aastaks 2030 KPP1 -2,8%, KPP2 -2,8%; aastaks 2050 KPP1 -34,3%, KPP2 -20,3% Riigi eelarvestrateegia 2020-2023  Transpordisektori energiakulu: baastase 34 tuh TJ (2016); sihttase ≤33,5 tuh TJ (2023) 6.5 Tõsta taastuvenergia osakaalu ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030: Arengukavas sisaldub sihteesmärk, et aastaks 2035 on transpordisektori energia taastuvenergia osakaal transpordisektoris 22,7%. Eesmärk on lõpptarbimises  Võtta kiiresti meetmeid kliimamuutuste ja nende mõj uga võitlemiseks  Tagada taskukohane, usaldusväärne, säästev ja kaasaegne energia kõikidele. 73 Sh riigisiseselt. 74 Roheleppe eesmärk 75% vedusid suunata maanteelt raudteele või merele. 75 Nt täiendav töötlemine, komplekteerimine, ümberpakkimine jne. Arendades transiitkaupade töötlemisega seotud tööstust ja teenuseid loome uusi ärimudeleid, täiendavaid töökohti, meelit ame lisainvesteeringuid, misläbi suureneb ka maksude laekumine riigile.  61  Tagada säästev tarbimine ja tootmine. väga ambitsioonikas, kuna muudes arengudokumentides, eelkõige REKK kohaselt, on aastaks 2030 eesmärgiks 14%. TLAK indikaator: Euroopa roheline kokkulepe: Eesmärgi täitmiseks sisaldab arengukava põhimõtteid  Taastuvenergia osakaal transpordis keskkonnasõbralikule veeremile üleminekuks ning vajaliku 22,7% 76 2035.a.  Säästvale ja arukale liikuvusele ülemineku kiirendamine toetava taristu rajamiseks. Seostuvad indikaatorid: Euroopa ühtse transpordipiirkonna tegevuskava – Konkurentsivõimelise ja ressursitõhusa transpordisüsteemi suunas (2011): Täpsemaid arengukavas toodud tegevused ja eesmärgid: Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis  Vähendada nn tavakütusel töötavate autode osakaalu poole võrra 2030. aastaks; järk - - Toetatakse keskkonnasäästlike kütuste kasutuselevõttu järgult kõrvaldada need linnaliiklusest 2050. aastaks; suuremates linnakeskustes peaks ning hoidutakse sekkumast konkurentsipõhisesse  2020. aasta lõpuks peab taastuvate 2030. aastaks olemas olema põhimõtteliselt CO2-heiteta logistikasüsteem . turumajandusse avalikult kasutatava alternatiivkütuste allikate osakaal transpordisektoris ületama 10%  Vähest CO2-heidet tekitavate keskkonnasäästlike kütuste osakaal peab lennunduses infrastruktuuri rajamisel. suurenema 40 %ni 2050. aastaks; samuti vähendada ELis 2050. aastaks  Viime üle kogu Eesti avalikult korraldatud merendussektoris punkrikütustega kaa snevat CO2-heidet 40 % (võimaluse korral 50 % bussitranspordi nullheitele läbi keskkonnasõbralike Energiamajanduse arengukava aastani 2030 ühistranspordihangete. Linnades toetame ).  Taastuvate energiaallikate osakaal  Mitmeliigiliste logistikasüsteemide toimimise optimeerimine, sealhulgas olemuselt alternatiivkütuste kasutuselevõttu tervikuna aastani transpordis tarbitud energiast, % 0,1% ressursitõhusamate transpordiliikide laialdasem kasutamine 2024 koos elektribusside laadimistaristuga, mis (2013) Sihttase 2020 10%  30 % maantee-kaubavedudest, mis on pikemad kui 300 km, tuleks asen dada muude võimaldab eelkõige üleöö laadimist.  Metaankütuste osakaal transpordiliikidega, nt raudtee- või veetranspordiga 2030. aastaks ja üle 50 %  Keskkonnasõbralike erasõidukite kasutuselevõtmise maanteesõidukite energiatarbimises 0% kõnealustest vedudest tuleks asendada muude transpordiliikidega 2050. aastaks; sellist suurendamiseks toetame laadimistaristu loomist (2012 Sihttase 2030 10%) üleminekut soodustaksid tõhusad ja keskkonnasäästlikud kaubaveokoridorid. Selle eramute ja kortermajade juurde. eesmärgi saavutamiseks on vaja ka infrastruktuuri asjakohaselt arendada.  Keskkonnasõbraliku energiatootmise toodangu salvestamiseks transpordis toetame ka uute kütuste Eesti riiklik energia- ja kliimakava aastani 2030 kasutuselevõttu, nt vesiniku näol ning teiste Euroopa vähese heitega liikuvuse strateegia:  Transpordi taastuvenergia eesmärk energiasäästu ja keskkonnahoidu soodustavate uute (osakaal lõpptarbimisest) 2030. aasta  Alternatiivkütuste taristu kasutuselevõtt; Elektritranspordi koostalitlus ja tehnoloogiate (nt muud innovaatilised energiasalvestid) jaoks – 14% transpordisektori standardimine; katsetamist summaarsest energia lõpptarbimisest.  Tasakaalustatud veondussektori areng: Kliimapoliitika põhialused aastani 2050: Transporditaristu kulude katmiseks ja keskkonnaalaste eesmärkide saavutamiseks rakendatakse Alternatiivkütuste taristu tegevuskava 2017  13. Soodustatakse kodumaiste taastuvate energiaallikate järk -järgult laiemat veondussektorile teekasutustasusid.  Taastuvate energiaallikate kasutamine kasutuselevõttu lõpptarbimise kõigis sektorites, pidades silmas ühiskonna heaolu kasvu Keskkonnasõbralikele transpordivahenditele üleminekut maanteetranspordis. Algtase 0,2%; ning vajadust tagada energiajulgeolek ja varustuskindlus. Soodustatakse kodumaiste soodustatakse nt heitevabadele kütustele soodustuste Vahetase 10% (2020); Sihttase 10% bio- ning teiste taastuvenergiaressursside laialdast kasutuselevõttu nii elektri - ja tegemisega, aga ka muude poliitiliste instrumentidega. (2025). soojusenergia tootmisel kui ka transpordikütustena. 12. 9. (Lisaks täpsemad mõõdikud kütuseliikide kaupa) Energiamajanduse arengukava aastani 2030:  Avalikuks kasutamiseks mõeldud kiirlaadijate arv on vähemalt 100.  Primaarenergia tõhusam kasutuse alaeesmärk – Eesti energiavarustus ja -tarbimine on Lisanduvad sadamad, mis pakuvad säästlikum kaldaäärset elektritoidet. Sadamate arv - Algtase 1; Vahetase 11 (2020); Sihttase Kliimamuutustega kohanemise arengukava aastani 2030 11 (2025).  Biokütuse lisamise kohustus  Alaeesmärk 8. Kliimamuutuste tõttu ei ole vähenenud energiasõltumatus, -turvalisus, müüdavatesse bensiini- ja varustuskindlus ja taastuvenergiaressursside kasutatavus ning ei suurene diislikütustesse: alates 2020. a 1. maist primaarenergia lõpptarbimise maht. 76 Vastavalt Riiklikule energia ja kliimakavale, prognoosi des 0,85% kasvu aastas.  62 10% igas tarbimisse lubatud kütuse liitris. Eesti riiklik energia- ja kliimakava aastani 2030:  Biometaani tarnimis- ja tankimisvõimekusega tanklate arv.  Taastuvate transpordikütuste osakaal aastaks 2030 14% Algtase 0; Sihttase 10 (2020)  Õliekvivalendi (ktoe) väärtuses Alternatiivkütuste taristu tegevuskava 2017: biometaani aastane tarbimine. Algtase 0; Sihttase 4000 tonni (2020)  Eesti eesmärgiks on suurendada taastuvate energiaallikate kasutamist 10. maanteetranspordis 10%-ni kulutatavast kütusest aastaks 2020. Eurostat  Share of renewable energy in gross final energy consumption by sector 11. Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis  2020. aasta lõpuks peab taastuvate allikate osakaal transpordisektoris ületama 10%  2035 aastaks liiguvad kõik Tallinna ühistranspordi sõidukid valdavalt taastuvelektri jõul.  Diiselsõidukid moodustavad Tallinna Linnatranspordis AS veeremist ca 79%. 7. Vähendada ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030: Saasteheitmete leviku piiramisele aitavad osaliselt kaasa kõik transpordiga Arengukavas sisalduvad tegevused ja põhimõtted, mis on seotud Seostuvad indikaatorid:  Toetada jätkusuutlikku, kaasavat ja säästvat majandusarengut ning tagada kõikidele suunatud transpordi nõudluse vähendamisele. Kuna valdav osa õhusaastet, eriti inimestele inimväärne töö. heitmetest pärineb autoliiklusest, siis aitavad eesmärgi suunas NEC-direktiiv linnades  Muuta linnad ja asulad kaasavaks, turvaliseks, vastupidavaks ja säästvaks. liikumisele kaasa ka tegevused ja põhimõtted, mis on suunatud  igale EL-i liikmesriigile kehtestatakse  Tagada säästev tarbimine ja tootmine. autokasutuse vähenemisele ja säästlikumaks muutmisele, õhusaasteainete heitkoguste ühistranspordi ja aktiivsete liikumisviiside kasutuse edendamiseks ette nähtud tegevused ja põhimõtted. Lisaks vähendamise kohustused aastateks Euroopa roheline kokkulepe: aitavad eesmärgi täitmisele kaasa ka keskkonnasäästlike kütuste 2020 ja 2030 võrreldes 2005. aasta  Säästvale ja arukale liikuvusele ülemineku kiirendamine kasutamise soodustamisele suunatud tegevused ja põhimõtted. tasemega.  Nullsaaste eesmärk mürgivaba keskkonna saavutamiseks Samas näeb arengukava siiski ette liikumiste hulga kasvu (sh autoliikluse kasvu), mistõttu ei pruugi olla tagatud Eestile aastaks 2030 kehtestatud eesmärgid saasteheitmete vähendamine, kuna puuduvad Euroopa Liidu Säästva arengu strateegia: transpordisektorist põhjustatud õhusaaste vähendamisele  NOx (30%), LOÜ (28%), SO2 (68%), NH3  Vähendada transpordi saasteheitmeid tasemeni, kus mõju inimeste tervisele ja/või suunatud selged meetmed. (1), PM2,5(41%) keskkonnale on minimaalne. Eesti keskkonnastrateegia aastani 2030 Täpsemaid arengukavas toodud tegevused ja eesmärgid: Euroopa puhta õhu pakett (2016):  transpordivahenditest tulev CO, NOx,  CO2e heite vähendamise poliitika. Eesmärgiks on  Eesmärgiks on aastaks 2030 vähendada õhusaaste kahjulikku mõju inimese tervisele PM10, SOx emissioon ↓ (tonni): transpordivahendite keskkonnajalajälje vähendamine. 40% võrreldes 2005. aasta tasemega. Maanteetranspordi keskkonnajalajälje vähendamiseks o CO: baastase 48 600 tonni; kehtestatakse teekasutustasud läbisõidu ja taristu o NOx: baastase 18 130 tonni; Teatavate õhusaasteainete heitkoguste vähendamise riiklik programm aastateks 2020 -2030 - koormuse alusel. Aktsiisi- ja maksupoliitikas lähtutakse o PM10: baastase 1 460 tonni; saastaja maksab põhimõttest ning maksustatakse NEC-direktiiv: o SOx: baastase 1 410 tonni. kütuseid vastavalt nende eriheitele ja energiasisaldusele. Tarvilik on võtta kasutusele madala süsinikusisaldusega  63  igale EL-i liikmesriigile kehtestatakse õhusaasteainete heitkoguste vähendamise kütused kõikides transpordiliikides, et saavutada kohustused aastateks 2020 ja 2030 võrreldes 2005. aasta tasemega. Ee stile aastaks 2030 energiasäästu eesmärke. kehtestatud eesmärgid: NOx (30%), LOÜ (28%), SO2 (68%), NH3 (1), PM2,5(41%)  Kaubaveos eelisarendatakse mere- ja raudteevedu kui kõige energiatõhusamaid kaugveoliike ning kujundatakse ökonoomset kaubavedu võimaldavat multimodaalset taristut. Kaupade liikumine läbi Eesti võimaldab ettevõtetel pakkuda oma klientidele kõrgema lisandväärtusega 77 teenuseid kui vaid transiit.  Arendame transpordisüsteemi säästvalt  Toetatakse keskkonnasäästlike kütuste kasutuselevõttu  Transporditaristu eesmärk soodustada säästvat liikuvust, sh aktiivsete liikumisviiside kasutust. See tähendab, et linnades ja äärelinnades on prioriteediks kergliiklus ja ühistransport (ning nende koostoime) – seda nii teede ehitusel kui ka aastaringsel hooldusel. Riiklike investeeringute ja toetuste saamise eelduseks on säästva liikuvuse arengukavade 78 olemasolu linnades.  Tasakaalustatud veondussektori areng: Transporditaristu kulude katmiseks ja keskkonnaalaste eesmärkide saavutamiseks rakendatakse veondussektorile teekasutustasusid. Keskkonnasõbralikele transpordivahenditele üleminekut soodustatakse nt heitevabadele kütustele soodustuste tegemisega, aga ka muude poliitiliste instrumentidega. 8. Kasutada ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030 - Vähendada Arengukava tegevuspõhimõtetest toetab loodusressursside transpordi taristu 2030. aastaks vältimise, vähendamise, ringlussevõtu ja taaskasutamisega oluliselt jäätmete säästlikku kasutust enim põhimõtted Arendame uuendamisel Seostuvad indikaatorid: teket transpordisüsteemi säästvalt ning vähendame transporditaristu loodusressursse Eesti keskkonnastrateegia aastani 2030 ökoloogilist jalajälge, mille juures tuuakse välja eesmärk säästlikult materjalide taaskasutuseks taristuehituses.  maavara kaevandamise maht ↓: Euroopa roheline kokkulepe – KSH soovitab täpsustada arengukavas, et tegevused ja meetmed  Lubjakivi ja dolomiit, baastase 5 760 000 peavad olema suunatud taastumatute loodusressursside kuupmeetrit;  Uue, tõhusa ja keskkonnahoidliku ringmajanduse loomine, mille edukus ei sõltuks ressursikasutusest. võimalikult suure lisandväärtusega ja lähtudes ringmajanduse  Kruus, liiv, baastase 3 281 000 põhimõttest kasutamisele taristu ehitamisel  Ökosüsteemide ja bioloogilise mitmekesisuse säilitamine ja taastamine kuupmeetrit; Eesti säästva arengu riiklik strateegia Säästev Eesti 21:  Tegevuspõhimõtted: Arendame teedetaristut Väljatöötamist vajavad mõõdikud:  1.Loodusvarade kasutamine viisil ja mahus, mis kindlustab ökoloogilise tasakaalu. kulutõhusalt  2. Saastumise vähendamine.  Vähendame transporditaristu ökoloogilist jalajälge ja  Ehitus- ja kinnisvara arendustegevusest kohaneme kliimamuutustega tingitud tehisala pindala kasv (tehisala  Taristuehituses tuleb samuti keskkonnaalast jalajälge iseloomustab kasutusse lubatud Eesti keskkonnastrateegia aastani 2030: vähendada ning alternatiivide valikul jalajälg välja eluruumide pind, teedevõrgu alla jääva  Eesmärk: Maavarade keskkonnasõbralik kaevandamine, mis säästab vett, maastikke ja arvutada ning tehtavas seda valikus arvestada. Ta ristu maa pindala, tootmis- ja õhku, ning maapõueressursi efektiivne kasutamine minimaalsete kadude ja kaubanduspind) ↓ minimaalsete jäätmetega. 77 Nt täiendav töötlemine, komplekteerimine, ümberpakkimine jne. Arendades transiitkaupade töötlemisega seotud tööstust ja teenu seid loome uusi ärimudeleid, täiendavaid töökohti, meelitame lisainvesteeringuid, misläbi suureneb ka maksude laekumine riigile. 78 Sh rattastrateegiad jmt.  64 ehituses taaskasutatakse materjale, nt põlevkivi Looduskaitse arengukava aastani 2020: aherainet.  Eesmärk 3. Loodusvarade pikaajaline püsimine ja selleks vajalikud tingimused on tagatud ning nende kasutamisel arvestatakse ökosüsteemse lähenemise põhimõtteid. Maapõuepoliitika põhialused aastani 2050:  Maapõueressursside kasutuse suunamisel tagatakse ringmajanduse põhimõtetest lähtuvalt ressursside võimalikult suure lisandväärtusega ning säästlik kasutamine minimaalsete kadude ja minimaalsete jäätmetega. Seejuures ei tarbita taastuvat maapõueressurssi üle taastumise määra ja uuritakse võimalusi taastumatute maapõueressursside asendamiseks taastuvate ressurssidega ning ressursside kasutamise tõhusamaks muutmiseks. 9. Vähendada ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030 – Arengukava tegevuspõhimõtetes otseseid viiteid bioloogilise transpordi sektori mitmekesisuse säilitamisele ei ole. Samas näeb Arengukava ette mõju Seostuvad indikaatorid:  Kaitsta ja kasutada säästvalt ookeane, meresid ja mere elusressursse, et saavutada nii liikumiste hulga kasvu (sh autoliikluse kasvu) kui täiendavate bioloogilisele säästev areng. taristuobjektide rajamist, mistõttu ei pruugi olla tagatud suurte Looduskaitse arengukava aastani 2020: mitmekesisusele  Kaitsta ja taastada maismaa ökosüsteeme ning propageerida nende säästvat rohevõrgustikku struktuuride terviklikkus ja toimivus, ning  Toimivate ökoduktide ja kasutamist; majandada metsi säästvalt, võidelda kõrbestumisega ning peatada ja välistatud ebasoodne mõju Natura 2000 võrgustiku aladele. väikeulukitunnelite arv: Ökodukte: pöörata ümber pinnase halvenemine ja bioloogilise mitmekesisuse hävimine. Baastase 2011 – 0; Sihttase 2020 – 4. KSH soovitab arengukavas täpsustada transporditaristu Väikeulukitunneleid: Baastase 2011 – arendamisel suurte rohevõrgustikku struktuuride terviklikkuse ja Euroopa roheline kokkulepe – toimivuse tagamise vajaduse ning Natura 2000 võrgustiku 10; Sihttase 2020 – 20  aladele ebasoodsa mõju vältimise põhimõtte. Rohevõrgustiku sidusust näitavate  Ökosüsteemide ja bioloogilise mitmekesisuse säilitamine ja taastamine indikaatorliikide arv. Baastase aastal  Nullsaaste eesmärk mürgivaba keskkonna saavutamiseks 2011 – 0, sihttase aastal 2020 – 15. Täpsemaid arengukavas toodud tegevused ja eesmärgid: EL elurikkuse strateegia aastani 2030 Kliimamuutustega kohanemise arengukava  Olemasoleva taristu eelistamine nn 4-astme printsiibi aastani 2050: Looduskaitse: peamised kohustused 2030. aastani rakendamisel  Maismaa ökosüsteemide elupaikade  Kaitsta õiguslikult vähemalt 30 % ELi maismaast ja 30 % ELi merealadest ning lõimida  Üldpõhimõte: Arendame transpordisüsteemi säästvalt mitmekesisus ja levik: baastase 50% tõelisse üleeuroopalisse loodusvõrgustikku ökoloogilised koridorid.  5.2 Esimesteks prioriteetideks transpordi taristu ja elupaikadest on halvas või  Kaitsta rangelt vähemalt kolmandikku ELi kaitse aladest, sealhulgas kõiki ELis veel alles teenuste arendamisel on ohutus (nt kiiruste ebarahuldavas seisundis (2014); olevaid loodus- ja põlismetsi. vähendamine, sõiduradade eraldamine, ohutud peatus - Sihttase 2030 ≤50% elupaikadest on  taastada kahjustatud maismaa- ja mereökosüsteemid kogu Euroopas, seejuures ja puhkekohad jmt) ja keskkonnahoid (sh taristu halvas või ebarahuldavas seisundis hooldel), vähendatakse 2030. aastaks 50% võrra pestitsiidide kasutamist ja nendega kaasnevaid  Metsade tagavara juurdekasv: baastase 12,9 mln m3 (2014); sihttase 2030 riske, suurenenud 10-20%.  liikmesriigid peavad tagama, et ühegi kaitsealuse elupaiga ega liigi kaitsesuundumus ja -staatus 2030. aastaks ei halveneks (Linnudirektiivis ja elupaikade direktiivis loetletud elupaigad ja ligiid) Eesti säästva arengu riiklik strateegia Säästev Eesti 21:  Loodusliku mitmekesisuse ja looduslike alade säilitamine. Eesti keskkonnastrateegia aastani 2030 -  Mitmeotstarbeliste ja sidusate maastike säilitamine  Elustiku liikide elujõuliste populatsioonide säilimiseks vajalike elupaikade ja koosluste olemasolu tagamine.  65 Üleriigiline planeering Eesti 2030:  Tagada tuleb riigi rohevõrgustiku suurte struktuuride terviklikkus ja toimivus, sest muidu ei ole võimalik säilitada ka peenemat kohalikku struktuuri. Seetõttu tuleb üldjuhul vältida suurte tehnilise taristu objektide ra jamist suurstruktuuride kaudu. Suurte tuumalade ulatus ei tohi eriti (üle 10%) väheneda. Kui rohevõrgustiku tuumaladele kavandatakse suuri, riigi toimimiseks vajalikke objekte, tuleb tagada tuumalasisene ja tuumaladevaheline sidusus Kliimamuutustega kohanemise arengukava aastani 2030:  Alaeesmärk 3. Muutuvas kliimas on tagatud liikide, elupaikade ja maastike mitmekesisus ning maismaa- ja veeökosüsteemide soodne seisund ja terviklikkus ning sotsiaal - majanduslikult oluliste ökosüsteemiteenuste pakkumine piisa vas mahus ja piisava kvaliteediga. Looduskaitse arengukava aastani 2020:  Eesmärk 2. Liikide ja elupaikade soodne seisund ja maastike mitmekesisus on tagatud ning elupaigad toimivad ühtse ökoloogilise võrgustikuna.  66 10. Vähendada 10.1 Vähendada koormust pinna- ja ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030: Kaudselt on eesmärgi täitmist toetavad kõik tegevused, mille transpordisektori, põhjaveele üheks lähtekohaks on keskkonnahoid. Selgemalt on sh taristu mõju  Parandada 2030. aastaks vee kvaliteeti, vähendades saastamist, tehes lõpu keelatud veekeskkonna kaitset arengukavas käsitletud ainult seoses veekeskkonnale Seostuvad indikaatorid: kohtadesse prügi mahapanekule ja viies miinimumini ohtlike kemikaalide ja materjalide merendusega. Merekeskkonna kaitse eesmärkide saavutamis eks keskkonda heitmine, vähendades poole võrra puhastamata reovee kogust ja vajalikud meetmed on lisaks arengukavale kirjeldatud täpsemalt  Veeseaduse alusel kehtestatud suurendades kogu maailmas oluliselt jäätmete rin glussevõttu ja ohutut taaskasutust. Merenduspoliitika laiendatud visioonis ning need aitavad kaasa kvaliteedinäitajate väärtuste ja keskkonnaeesmärgi täitmisele. KSH soovitab käsitleda ka pinna -  Kaitsta ja taastada 2020. aastaks veega seotud ökosüsteeme, sealhulgas mägesid, metsi, kehtestatud kvaliteedi piir- või ja põhjavett säästvate taristuehituse ja -hooduspraktikate läviväärtuste kohaselt on veekogumi märgalasid, jõgesid, põhjaveekihte ja järvi kasutamist. seisund vähemalt hea Eurostat Euroopa roheline kokkulepe: Täpsemaid arengukavas toodud tegevused ja eesmärgid:  Bathing sites with excellent water  Ökosüsteemide ja bioloogilise mitmekesisuse säilitamine ja t aastamine  Tegevussuund Mereriik Eesti 79 , innovatiivne ja quality by locality. Number and % of  Nullsaaste eesmärk mürgivaba keskkonna saavutamiseks keskkonnahoidlik meretransport, kus muuhulgas bathing sites eesmärkideks seatud ka muuta merendussektor keskkonnasõbralikumaks ning suurendada ohutust Vee raamdirektiiv (2000/60/EC): veekogudes ja sadamates.  direktiivi eesmärk on kehtestada maismaa pinnavee, üleminekuvee, rannikuvee ja  Viidatud probleemile: Täiendav laevaliiklus toob kaasa ka Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis põhjavee kaitse raamistik ökoloogilise jalajälje suurenemise, mida on võimalik vähendada sadamatasude diferentseerimisega ja  Põhjaveevõtt, 213 miljon m 3 (2018) erinevate automaatika lahenduste ja puhaste kütuste  Vähemalt heas koondseisundis olevate Eesti säästva arengu riiklik strateegia Säästev Eesti 21: kasutusele võtuga. pinnaveekogumite osatähtsus 54%  Saastumise vähendamine. (2018)  TEN-T põhivõrgu sadamatesse tuleb luua alternatiivsete  Põhjaveekogumitest oli 2017.aastal keskkonnasõbralikemate kütustega punkerdamise vähemalt heas seisundis 79% Eesti keskkonnastrateegia aastani 2030: võimalus.  2021. aastaks pinnaveekogumitest 81%  Laevaremondi ja –ehitussektori konkurentsi- ja heas seisundis  Saavutada pinnavee (sh rannikuvee) ja põhjavee hea seisund ning hoida veekogusid, ekspordivõime valdkonnas on oluline avaliku sektori toe  2021.aastaks 84% põhjaveekogumitest mille seisund juba on hea või väga hea. ühtlustamine võrreldes naaberriikidega sektori vajadusi heas seisundis arvestavate innovatiivsete ja keskkonnasõbralike sekkumismeetmetega. 79 Merenduspoliitika laiendatud visioon on kirjeldatud TLAK Lisas 4.  67 10.2 Tagada keskkonnaohutu Eesti merestrateegia:  suurendame kvaliteetset laevade järelevalvet üha mereliiklus suuremale hulgale laevadele  saasteainete kontsentratsioon vees ei ületa kehtestatud piirnorme, ei esine märkimisväärset akuutset reostust ja ökosüsteemidele avalduv saastumise mõju on Seostuvad indikaatorid: väike. Mereala seireprogramm 2021 - 2026  Ohutu mereliikluse ja tõhusa reageerimisvõime tagamine Läänemerel. (koostamisel):  Sadamate laadimis- ja lossimistöödest tekkiva keskkonnahäiringu Veeseadus: vähendamine (BALEE-T32) - 1)  Veekaitse üldised eesmärgid on: Sadamates lastimis- ja lossimistööde 13. 1) vähendada inimtegevuse mõju veekeskkonnale; inspekteerimise arv; 2) kaebuste arv 14. 2) vältida veeökosüsteemide, nendest sõltuvate maismaaökosüsteemide ja märgalade  Eesti sadamaid külastavad laevad seisundi halvenemist ning parandada nende seisundit; täidavad rahvusvahelistest 15. 3) soodustada vee kestlikku kasutamist ning tagada pinna - ja põhjaveevarude konventsioonidest tulenevaid pikaajaline kaitse ning piisav veevarustus; 16. 4) lõpetada prioriteetsete ohtlike ainete heide ja piirata saasteainete, sealhulgas keskkonnanõudeid (BALEE-T35) - muude ohtlike ainete heidet veekeskkonda; Kontrollitud laevade ja neil avastatud 17. 5) aidata kaasa üleujutuste ja põudade mõju leevendamisele; rikkumiste arvude suhe 18. 6) saavutada mereala hea keskkonnaseisund.  Eesti merereostustõrjealane võimekus on Läänemere piirkonnas kokku lepitud tasemel: 1) mererostustõrjealase võimekuse vastavus Läänemere piirkonnas kokkulepituga; 3) Sadamaseaduse kohaste sadamate reostustõrjeplaanide ning laevaheitmete ja lastijäätmete käitluskavade olemasolu ja rakendamine 2024. aastaks (2018 baastase 65%) Merestrateegia meetmekava:  Saasteainete kontsentratsioonid ei ületa kehtestatud piirväärtusi  Õlireostuse tagajärjel hukkunud lindude arv ei suurene taseme 2010–2012 suhtes Ülevaade ÜRO tegevuskava 2030 elluviimisest Eestis  Kaitstava mereala osatähtsus territoriaalmere pindalas, 27% (2018)  Vähemalt heas koondseisundis rannikuveekogumid, 0 (2018)  68 11.1 Leevendada transpordiga Euroopa roheline kokkulepe: Transpordimüra leviku piiramisele aitavad osaliselt kaasa kõik seotud müra mõju Arengukavas sisalduvad tegevused ja põhimõtted, mis on 11. Leevendada  Säästvale ja arukale liikuvusele ülemineku kiirendamine suunatud transpordi nõudluse vähendamisele. Kuna valdav osa transpordisektori  Ökosüsteemide ja bioloogilise mitmekesisuse säilitamine ja taastamine transpordimürast pärineb autoliiklusest, siis aitavad eesmärgi mõju inimese Seostuvad indikaatorid:  Nullsaaste eesmärk mürgivaba keskkonna saavutamiseks suunas liikumisele kaasa ka tegevused ja põhimõtted, mis on tervisele suunatud autokasutuse vähenemisele ja säästlikumaks Keskkonnamüra direktiiv: muutmisele Euroopa Liidu Säästva arengu strateegia:  Põhimaanteede, põhiraudteede ja põhilennujaamade kohta kogupindala  Vähendada transpordimüra nii selle tekitajas kui ka leevendusmeetmete (ruutkilomeetrites), kus Lden rakendamisega, et minimeerida müra üldist taset ja selle mõju tervisele. Täpsemaid arengukavas toodud tegevused ja eesmärgid: arvväärtused on vastavalt suuremad kui  6. Innovatiivsed liikuvusteenused: Uute 55, 65 ja 75 dB. Keskkonnamüra direktiiv: liikuvusteenuste lisandumisel pööratakse tähelepanu ka,  Elamute hinnanguline koguarv (sadades) et linnaruumi, et linnaruumi ei tekiks juurde liigset müra. ja inimeste hinnanguline koguarv  eesmärk on määratleda ühtne lähenemisviis, et vältida, ennetada või vähendada (sadades), kes elavad kõikides nendes keskkonnamüraga kokkupuutumisest tingitud kahjulikke mõjusid, sealhulgas häirivust, piirkondades. Linnastud peavad nende tähtsuse järjekorras. Liikmesriigid koostavad linnastute, põhimaanteede, sisalduma nendes arvudes. Tuleb põhiraudteede ja põhilennujaamade mürakaardid ja tegevuskavad; esitada ka 55 ja 65 dB kontuurid ühel või 19. Atmosfääriõhu kaitse seadus: mitmel kaardil, milles esitatakse informatsioon nendesse kontuuridesse  Välisõhu strateegiline mürakaart on kaart, mille abil antakse üldhinnang tiheasustusala kuuluvate külade, linnade ja linnastute või põhimaantee, põhiraudtee ja põhilennuvälja tekitatud müratasemete kohta või asukoha kohta. antakse üldprognoos selle piirkonna müratasemete kohta. Välisõhu strateegiline mürakaart on müra vähendamise tegevuskava aluseks. Eesti keskkonnastrateegia aastani 2030  Mürataseme alandamiseks tehtud investeeringud (krooni või % SKP-st või inimese kohta) ↑, baastase 2 192 000 krooni; 11.2 Vähendada õhusaaste Euroopa puhta õhu pakett (2016): Saasteheitmete leviku piiramisele aitavad osaliselt kaasa kõik kahjulikku mõju Arengukavas sisalduvad tegevused ja põhimõtted, mis on  Eesmärgiks on aastaks 2030 vähendada õhusaaste kahjulikku mõju inimese tervisele suunatud transpordi nõudluse vähendamisele eriti 40% võrreldes 2005. aasta tasemega. linnakeskkonnas alaeesmärgis 5.1 keskkonnasäästlik liikuvus Seostuvad indikaatorid: linnas ja linnakeskkond. Kuna valdav osa heitmetest pärineb NEC-direktiiv- Eestile aastaks 2030 kehtestatud autoliiklusest, siis aitavad eesmärgi suunas liikumisele kaasa ka Teatavate õhusaasteainete heitkoguste vähendamise riiklik programm aastateks 2020 -2030 - tegevused ja põhimõtted, mis on suunatud autokasutuse eesmärgid: NEC-direktiiv vähenemisele ja säästlikumaks muutmisele ühistranspordi ning  NOx (30%), LOÜ (28%), SO2 (68%), NH3  igale EL-i liikmesriigile kehtestatakse õhusaasteainete heitkoguste vähendamise aktiivsete liikumisviiside edendamiseks ette nähtud tegevused ja (1), PM2,5(41%) põhimõtted. Samas näeb Arengukava siiski ette liikumiste hulga kohustused aastateks 2020 ja 2030 võrreldes 2005. aasta tasemega. kasvu (sh autoliikluse kasvu), mistõttu ei pruugi olla tagatud saasteheitmete vähendamine. Eesti keskkonnastrateegia aastani 2030: Eestile aastaks 2030 kehtestatud eesmärgid:  Õhu saastatus (keskmine päevade arv  NOx (30%), LOÜ (28%), SO2 (68%), NH3 (1), PM2,5(41%) linnastunud aladel, mil osooni, tahkete osakeste, vääveldioksiidi ja lämmastikoksiidi kontsentratsioon ületab lubatud taset ) ↓; baastasemed (nelja mõõtmispunkti keskmised):  69 o PM10: 16 päeva/aastas; o O3: 1,8 päeva/aastas; o NOX: 0 päeva/aastas; o SO2: 0 päeva/aastas.  Suremus hingamisteede haigustesse (surmajuhtumit 100 000 elaniku kohta aastas) ↓, baastase 35,1;  Suremus südame- ja veresoonkonna haigustesse (surmajuhtumit 100 000 elaniku kohta aastas) ↓, baastase 685,7;  Sõiduautode arv tuhande elaniku kohta (maakondade kaupa) 365 ↓. Eurostat  lämmastikoksiidide (NOx) heide transpordisektoris  peenosakeste heide transpordisektoris 6.3 Vähendada liikluses (kõikide ÜRO tegevuskava Muudame maailma: säästva arengu tegevuskava aastaks 2030: Otseselt eesmärgi täitmiseks on Arengukavas tegevussuund 5.2 transpordiliikide lõikes) hukkunute ja raskelt Ohutud teed ning üldpõhimõte Ohutu ja toimiv vigastatute arvu  3.6 Vähendada 2020. aastaks poole võrra liiklusõnnetustes hukkunute ja vigastatute transpordisüsteem. Arengukava näeb ette liiklusohutuse tõstmist arvu. nii modaalsuse muutuste, taristuehituse põhimõtete kui teiste tegevuste kaudu. Linnakeskkonnas toetab ohutust ka linnaliikluse TLAK indikaator: rahustamine tänavaruumi kujundamisega. Euroopa Liidu Säästva arengu strateegia:  Vähendada liikluses (kõikide  Vähendada 2010. aastaks maanteetranspordis hukkunute arvu võrreldes 2000. Aastaga transpordiliikide lõikes) hukkunute ja poole võrra. raskelt vigastatute arvu poole võrra ehk 30 hukkununi kolme aasta keskmisena Euroopa ühtse transpordipiirkonna tegevuskava – Konkurentsivõimelise ja ressursitõhusa 2035. aastaks liiklusohutuse transpordisüsteemi suunas (2011): indikaatorina.  Viia maanteeliikluses hukkunute arv 2050. aastaks enam -vähem nullini. Vastavalt sellele Seostuvad indikaatorid: eesmärgile püüab EL vähendada liiklusohvrit e arvu 2020. aastaks poole võrra. Tagada ELi juhtpositsioon kõikide transpordiliikide ohutuse ja turvalisuse osas. Riigi eelarvestrateegia 2020-2023:  Liiklussurmade vähenemine: algtase Linnalise liikuvuse pakett: 2015-2017 – 70 (ainult MNT 60);  Jätkab eelneva Rohelise raamatu peamiste teemadega. Tegeleda tuleb rohkem ka sihttase 2023 - ≤50 (ainult MNT 44) linnalogistika, linnadesse ligipääsu, liiklusohutusega.  Lisa 5. Olukorra analüüs ja ülevaade varasematest tulemus- ja mõjuhindamistest Lühikokkuvõte Üldistatud olukorra analüüsi põhilised järeldused Transpordi arengukava 2014-2020 ja struktuurivahendite rakenduskava täitmise osas on järgmised[1]: · TEN-T (üleeuroopaline transpordivõrgustik) võrgustiku teede seisukord on tänu viimastel aastatel tehtud suurtele investeeringutele taristusse väga hea. 2019. aastal moodustasid halvas seisus TEN-T võrgustikku kuuluvad teed vaid 0,7% kogu riigiteede võrgust, mis on 10,3% võrra parem, kui 2018. aasta eesmärgiks seatud 11%. 2027. aasta lõpuks võib halvas seisus teede osakaal taas veidi tõusta, kuna paljud investeeringud on tehtud ca 10 aastat tagasi, kuid prognoositavalt jääb see alla 11%. Kuigi TEN-T teede seisukord on väga hea, siis ei täida Eesti veel TEN-T määruse[2] nõudeid teede osas. Sh tuleb pingutada, et täita 2030. aastaks seatud põhivõrgu väljaehitamise kohtustust (ökoduktid, mahasõidud, eritasandlised ristmikud jne). · Rongikasutajate arv on iga-aastaselt kasvanud. 2019. aastal ületas reisijate arv 8,3 miljoni piiri. Eesmärk, 8,8 miljonit rongireisijat 2020. aastal, oleks olnud ilma COVID-19 kriisita täidetav. · Ühistranspordi kasutajate, jalgsi ja jalgrattaga liikujate osakaal on jätkuvalt probleemne. Kuigi alates 2018. a on enamikel maakonnaliinidel bussisõit reisijatele tasuta ning Tallinnas kehtib tasuta sõit elanikele juba varasemast, ei ole saavutatud ühistranspordi kasutatavuse fundamentaalset tõusu ja eelistamist[3]. Tööl käimiseks kasutas 2019. aastal ühistransporti, käis jala või sõitis rattaga vaid 38,8% inimestest (eesmärk 2023. aastaks on 50%) ning osakaal on langev. Suure tõenäosusega 2023. aasta eesmärki ei täideta, kui vahepeal ei tehta olulisel määral ühistranspordi ja kergliikluse eelisarendamist. · 2019. aasta kaubaveo mahud on sarnasel tasemel, mis eelnevatel aastatel (50 miljonit tonni). 2020. aasta sihttasemeni (86 miljonit tonni) jõuda ei ole ida-lääne suunalise kaubavoo taastumiseta hetkel realistlik. Peamised väljakutsed · Suurimad väljakutsed ühistranspordis on jätkuvalt seotud hajaasustusega ning perifeersete piirkondade teeninduskvaliteedi tagamise ja tõstmisega kulutõhusa ühistranspordi korralduse ning vajaduspõhise liinivõrgu loomise abil. Sealhulgas tuleb läheneda ühistranspordi korraldusele vajaduspõhiselt ning arendades nõudluspõhist transporti seal, kus mõistlik. Tiheasustusaladel on suurim väljakutse isiklike sõiduautode kasutamise kasvu ohjeldamine pendelrändes kvaliteetse, rohkem regionaalselt integreeritud ühistransporditeenuse pakkumise teel. · Raudtee taristu probleemkohaks on läbilaskevõime, mis takistab omakorda kiiruseid tõsta. Läbilaskevõime tagamine on võtmeküsimuseks liikluse tihenemisel. Ülejäänud 1  raudteeliinid on pigem alakasutatud ehk nende kasutamist tuleb muuta atraktiivsemaks ka kaubavedudeks ning investeeringute teostamisel on vajalik tagada optimaalne taristu konfiguratsioon (st vajadusel vähendada jaamade ja/või raudteede arvu, konsolideerida samaväärseid jaamaparkide funktsionaalsusi ühte asukohta jne ). · Rattaga tööl käijate osakaal on endiselt madal ehk vaid ligi 2,5% ning tegelik potentsiaal on realiseerimata (nt rattakasutuse ja rongi ühendusvõimaluste realiseerimise osas). Näiteks Soome ja Taani on tuntud väga populaarse ja nutika rattakasutuse poolest, nt Helsingis kasutab ratast 10% tööl käijatest. Eesti suurimates linnakeskustes on ohutut rattakasutust võimaldav rattateede ja parkimisvõimaluste võrgustik lünklik . · Viimastel aastatel on läbisõidu kasv maanteedel olnud ca 4% aastas. Perioodil 2014-2017 kasvas läbisõit kokku 14%. See tähendab, et Transpori Aregukavaga 2014-2020 perioodi lõpuks prognoositud kasv on tänaseks ületatud. Tegelik Tegelik Tegelik Sihttase Indikaator 2017 2018 2019 2020 Liiklusõnnetustes hukkunute arv kolme 60 62 55,6 ≤ 50 aasta keskmisena Allikas: Maanteeamet Ettevõtte juhtide hinnang Eesti 4,9 55,76[4] 55,7 56[5] transpordisüsteemile, rahuloluindeks (sihttase Allikas: World Economic Forum, Global 2018 Competitiveness Index1 4,6) Ühistranspordi kasutajate osakaal tööl 20 20,7 20,6 25 käijate hulgas, % Allikas: Eesti tööjõuuuring Maanteeliikluse keskmine kasv/SKP kasv, 14/17 14/25,7 - <11/22 kolme aasta keskmisena, % Allikas: Maanteeamet; Statistikaamet KHG heitkogused (kt CO2-ekvivalenti)9 2 427,47 2 427,67 - ≤ 2 405 Allikas: Keskkonnaministeerium [1] Allikaks on tulemusvaldkonna aruanne. Detailsed aruanded on kättesaadavad aadressil: https://www.mkm.ee/et/tegevused-eesmargid/transport [2] https://eur-lex.europa.eu/legal-content/ET/TXT/HTML/?uri=CELEX:02013R1315-20190306&from=EN [3] Kuigi Tallinnas ja enamikes maakondades on bussisõit tasuta, siis olenemata sellest, et ligi 50% liikumistest toimub Tallinna-Harjumaa piirkonnas, on Harjumaal bussiõit tasuline. Samuti on see tasuline nt harjumaalastele, kes pole Tallinna elanikud. [4] 2018. aastast alates mõõdiku metoodika muutus ja pole enam võrreldav varasemate aastatega. Antud rahvusvaheline indeks ei peegelda piisavalt hästi Eesti transpordi taristu ja teenuste olukorda. Seetõttu on kavas transpordi ja liikuvuse arengukava koostamise raames uus indikaator välja töötada. [5] Transpordi programmis määratud sihttase 2023. aastaks 2 Transpordi majandusülevaade Eesti transpordisüsteemi osad on raudtee-, maantee-, mere-, sisevee- ja õhutransport, elektritransport linnades ning torutransport. Veonduse ja laonduse tegevusalal on hõivatud 7,5% kõigist hõivatutest ehk umbes 50 000 inimest. Transporditeenused annavad suure panuse eksporditulu laekumisse ja tasakaalustavad Eesti väliskaubandusbilanssi. Mitmed transpordisektori sisendid (kulutused sõidukite ostmisele, hooldamisele ja kütusele) on üsna mahukad importtooted. Lisaks panustab transpordisektor oluliselt kasvuhoonegaaside tootmisesse. Arvestades Euroopa Liidu seatud kliimaeesmärke vähendada 2035. aastaks transpordisektori kasvuhoonegaase 23–38% võrreldes 2018. aastaga, tuleb sektori edasisel arendamisel pöörata rohkem tähelepanu energiatõhususe suurendamisele. Veonduse ja laonduse tegevusalal tegutseb umbes 5700 ettevõtet. Maismaa reisijateveos on suurima veomahuga Tallinnas bussi-, trammi- ja trolliliiklusteenust osutav Tallinna Linnatranspordi AS. Riigisisest reisijate vedu raudteel korraldab AS Eesti Liinirongid (Elron), kaupa veab raudteel peamiselt AS Operail. Kaubavedudel on juhtivad logistikafirmad AS Schenker, DSV Estonia AS ja DHL Express Estonia AS. Kogu transpordisektori suurim ettevõte on AS Tallink Grupp, mis tegeleb reisijate ja kauba merevedudega. Olulisim sadamateenuste pakkuja on AS Tallinna Sadam, mis haldab viit sadamat: Vanasadam (sh Vanasadama jahisadam), Muuga sadam, Paldiski Lõunasadam, Paljassaare sadam ja Saaremaa sadam. Õhutranspordi valdkonna suurim ettevõtja on rahvusvahelise reisijate- ja kaubaveoga tegelev AS Nordic Aviation Group. Suurim ettevõte posti- ja kulleriteenistuses on AS Eesti Post (Omniva). Kuigi 2018. aastal näitasid Eesti ettevõtete veomahud (tonnides) üle mitme aasta tõusu, siis 2019. aastal oli langus võrdlemisi suur – 10%. Suurim, 23%line veomahtude langus oli raudteel. Ka veosekäive (tonnkilomeetrites) langes 2019. aastal 12,5%. Kui sõitjate arv 2019. aastal eelmise aastaga võrreldes 6% võrra kasvas, siis sõitjakäive (sõitjakilomeetrid) langes 0,2%. Ühistranspordi kasutajate koguarv suurenes 6,3%. Kasvas ka raudtee-, mere- ja maismaatranspordi kasutajate arv (vastavalt 7,9%, 1% ja 6,7%). Suure languse (–41%) tegi vaid Eesti Kuigi 2018. aastal õhutranspordi ettevõtete kasutajate arv. näitasid Eesti % Sektori osatähtsus majanduses ettevõtete veomahud 100 üle mitme aasta tõusu, 80 siis 2019. aastal oli 60 langus võrdlemisi suur 95,7 – 10%. 40 20 7,0 7,5 0 Osatähtsus Osatähtsus hõives Suhe keskmisesse lisandväärtuses palka Allikas: Statistikaamet 3  mld EUR Müügitulu % vea 7 15 6 10 5 5 4 0 3 2 -5 1 -10 0 -15 2014 2015 2016 2017 2018 2019* Müügitulu Müügitulu muutus (parem skaala) Allikas: Statistikaamet Eesti transport müügitulu alusel Maismaaveondus ja torutransport 32% Kogu kauba veomaht langes 2019. aastal 10%, 49,8 mln Vesi tonnini. 13% Õhk Abistavad 5% tegevusalad 47% Posti- ja kulleriteenus Allikas: Statistikaamet 3% Kogu kauba veomaht langes 2019. aastal 10%, 49,8 mln tonnini. Enim vähenes põlevkivi kaubamaht, suurenes kemikaalide, keemiatoodete ja keemiliste kiudude, kummi- ja plasttoodete ning puidu- ja paberitoodete maht. mln t Eesti ettevõtete veetud veoste maht % vea 80 2 0 60 -2 -4 -6 40 -8 -10 20 -12 -14 0 -16 2014 2015 2016 2017 2018 2019 Veetud kaup Muutus (parem skaala) Allikas: Statistikaamet 4  Eesti transpordiettevõtete kaubavedu (tuhat tonni) Raudtee- transport; 21 341 Mere- transport; 37 690 Maantee- transport; 28 369 Allikas: Statistikaamet Konteinervedude maht sadamates suurenes 2019. aastal 242 060 TEUni ehk 0,4%. Konteinerites veetud kaupade kogus langes 1,5% 1,97 mln tonnini. Konteinerite vedu Eesti sadamate kaudu Konteinerites veetud TEU kaupade kogus langes 300 000 1,5% 1,97 mln tonnini. 200 000 100 000 0 2014 2015 2016 2017 2018 2019 Allikas: Statistikaamet Eesti sadamaid läbis 2019. aastal 37,7 mln tonni kaupa, mis oli 4,9% enam kui varasemal aastal. Välissadamatest saabus Eestisse kaupa 6% rohkem, s.o 6,6 mln tonni, meie sadamatest lähetati välismaale 10,7 mln tonni kaupa, mis oli 1,4% 2018. aasta mahtudest enam. Kauba laevalt maha laadimine ehk lossimine moodustas sadamate kaubamahust 2019. aastal 12,3 mln tonni ning kauba laevale laadimine ehk lastimine 25,3 mln tonni. Võrreldes eelneva aastaga kasvas lossimine 7,7% ja lastimine 3,1%. 2019. aastal lossiti Eesti sadamates enim rafineeritud naftatooteid. Kõige enam lastiti samuti rafineeritud naftatooteid ning kemikaale, kummi- ja plasttooteid. Sadamad teenindasid 2019. aastal ca 62% ulatuses meritsi lähetatavaid ning ülejäänu osas meritsi saabuvaid kaubavooge. 5  mln t Kaubavedu Eesti sadamate kaudu % vea 50 10 40 0 30 -10 20 -20 10 -30 0 -40 2014 2015 2016 2017 2018 2019 Veosed kokku Transiit Veoste muutus % (parem skaala) Transiidi muutus % (parem skaala) Allikas: Statistikaamet Meritsi reisijate arvud muutusid 2018. aastaga võrreldes minimaalselt. Eesti mereveoettevõtjad vedasid 2019. aastal pea 1% enam sõitjaid kui aasta varem, s.o 9,5 mln reisijat. Eesti sadamatest välismaale reisijate arv langes vähesel määral (0,14%), jäädes 5,1 mln reisija juurde. Meile saabus 5,7 mln reisijat ehk 0,7% enam kui aasta varem. Suurema kasvu (3,6%) tegi Eestit külastanud kruiisituristide arv, ulatudes 676 384 inimeseni. Samuti kasvas riigisisestel liinidel Eesti meretranspordiettevõtete reisijate arv 4,2% 2,59 miljonini, Eesti sadamaid läbis rahvusvaheliste liinide reisijate arv kahanes 0,6% 6,9 miljonini. 2019. aastal 37,7 mln Meretranspordiettevõtete sõitjakäive langes 1,3 mld tonni kaupa, mis oli sõitjakilomeetrini, mis oli 1,8% vähem kui eelmisel aastal. 4,9% enam kui Raudteekaubaveo üldine langus on põhjustatud 2014. aastal Euroopa varasemal aastal. Liidu poolt Venemaa suhtes kehtestatud sanktsioonidest. Olulist mõju avaldab ka see, et Venemaa kasutab kauba saatmiseks välisriikidesse raudtee asemel üha rohkem oma sadamaid. Kaubavedu Eesti raudteedel kahanes 2019. aastal 27,8 mln tonnilt 21,3 mln tonnini ehk 23%. Kuigi ka riigisisese avaliku raudtee kaubaveo maht 2019. aastal langes (–2,5%), siis oli raudteekaubavedude üldise suure languse põhjuseks põlevkiviveo vähenemine riigisisestel mitteavalikel raudteedel, kus mahud vähenesid eelneva aastaga võrreldes 6 mln tonni võrra ehk 43%. Raudtee rahvusvaheliste vedude maht on viimasel paaril aastal järjepidevalt kasvanud, olles 2019. aastal 3,2% kõrgem (11,1 mln tonni) kui aasta varem. Raudteel veetavate transiitkaupade maht kasvas ka 2019. aastal, 9,4 mln tonnini, mis oli 3% enam kui aasta varem. Import moodustas 2019. aastal 1,45 mln tonni ehk 7,2% enam ning eksport 0,26 mln tonni ehk 9,4% vähem kui 2018. aastal. Riigisisestel raudteevedudel veeti enim põlevkivi, kuid võrreldes Kõige enam lossiti ja 2018. aastaga langesid need 46% 7,6 mln tonnini. Peamised lastiti Eesti sadamates transiitkaubad olid kemikaalid, keemiatooted ja keemilised kiud, rafineeritud kummi- ja plasttooted. Kaubavedu avalikul raudteel kahanes 2,6% 13,2 mln tonnini. Transiitkauba vedu moodustas 2019. aastal kogu naftatooteid. kaubast 44%. Raudteetranspordi veosekäive kasvas 2019. aastal 16,7% 2,16 mld tonnkilomeetrini. Raudteel veetavate kaupade maht oli 21,3 mln tonni, olles 23,3% madalam kui 2018. aastal ning 6  moodustades vaid 32% maksimumtasemest (66 mln tonni) 2007. aastal. Sõitjatevedu raudteel on alates 2014. aastast, kui olid valminud suuremad rekonstrueerimistööd ning soetatud uued rongid, püsivalt kasvanud. 2019. aastal oli kasv varasema aastaga võrreldes 7,9% ehk kokku pea 8,4 mln reisijat. Ka rahvusvaheline reisijatevedu kasvas 112 000 sõitjani, mis oli 4,6% enam kui aasta varem. Raudteetranspordi sõitjakäive langes 6% võrra 391,7 mln sõitjakilomeetrini. Eesti õhutranspordiettevõtted vedasid 2019. aastal 0,6 mln sõitjat, mis oli 41% vähem kui aasta varem. Õhutranspordi ettevõtete sõitjakäive langes 18% 1,27 mld sõitjakilomeetrini. Suur vähenemine oli seotud Nordica kahjumlike liinide sulgemisega 2018. aasta lõpus ja Enim kasvas 2019. aasta alguses. Nordica lennukipargi suurus jäi samaks, mis riigisisestel liinidel 2018. aastal – kokku 19 lennukit. Eesti suurimat lennujaama – Tallinna Eesti Lennujaama – kasutas 2019. aastal 3,3 mln inimest (kasv 8,8%), samuti veeti selle kaudu enamik õhutranspordiga veetavast kaubast. meretranspordiettevõ tete reisijate arv – 2019. aastal vedasid maanteetranspordi ettevõtted 28,4 mln tonni seda 4,2% võrra, kaupa, mis oli 0,4% vähem kui aasta varem. Rahvusvaheliste ulatudes kaubavedude maht vähenes 5,3%, ulatudes 5 mln tonnini. Riigisiseste kaubavedude maht kasvas 0,7% 23,4 mln tonnini. 2,59 miljonini. Maanteetranspordi sõitjatevedu kasvas 2019. aastal varasema aastaga võrreldes 6,7%, s.o 203,3 mln sõitjani, kellest 167,7 mln ehk 2,4% rohkem liikus linnaliinidel (sh trammi ja trolliga). 2019. aasta novembris valmis Tallinnas Reidi tee projekt, mis parandas Pirita suunas auto- ja kergliiklejate (sh jalgsi ja jalgrattaga) mugavust. Maakonnaliinidel kasvas sõitjate arv 33,7% 35,6 mln reisijani. Suur kasv on tõenäoliselt tingitud maakondliku tasuta ühistranspordi käivitumisest paljudes omavalitsustes. Riigisisestel juhuvedudel oli 4,8 mln reisijat (kasv 44,6%). Riigisisestel kaugliinidel vähenes Kuigi ka riigisisese sõitjate arv 2,8%, ulatudes 3,9 mln reisijani, rahvusvahelistel liinidel avaliku raudtee oli sõitjaid 1,6 mln (kasv 14,4%). Maanteetranspordi sõitjakäive kasvas 10,8%, olles 3,24 mld sõitjakilomeetrit. Rahvusvahelistel kaubaveo maht vedudel kasvas sõitjakäive 13,2%, riigisisestel 9,6%. 2019. aastal langes (– 2,5%), siis oli Eesti ettevõtete veetud reisijad raudteekaubavedude transpordiliigi järgi (mln reisijat) üldise suure languse 10 250 põhjuseks 8 200 põlevkiviveo 6 150 vähenemine 4 100 riigisisestel 2 50 mitteavalikel 0 0 2014 2015 2016 2017 2018 2019 raudteedel. Raudtee (vasak skaala) Vesi (vasak skaala) Õhk (vasak skaala) Maantee (parem skaala) Allikas: Statistikaamet 2019. aastal kasvas hõivatute arv veonduse ja laonduse ettevõtetes 1,7%. Sektori palgatõus oli Eesti keskmisest (7,4%) kõrgem ehk 8,5%, mistõttu mahajäämus Eesti keskmisest palgast vähenes. 7  Töötajate arv (ettevõtlusstatistika) 45000 8,0 40000 7,0 35000 6,0 30000 5,0 4,0 25000 3,0 20000 2,0 2019. aastal kasvas 15000 1,0 sõitjatevedu raudteel 10000 0,0 5000 -1,0 7,9% ehk 8,4 mln 0 -2,0 reisijani. 2014 2015 2016 2017 2018 2019 Hõivatute arv Hõivatute arvu muutus Allikas: Statistikaamet Töötajate palgad % vea 1600 9 1400 8 1200 7 1000 6 5 800 4 600 3 400 2 200 1 0 0 2014 2015 2016 2017 2018 2019 Keskmine palk (eurot) Palga muutus (parem skaala) Allikas: Statistikaamet mln EUR Lisandväärtus, tööjõukulud ja tootlikkus % vea 1400 12 1200 8 1000 4 800 0 600 400 -4 200 -8 0 -12 2014 2015 2016 2017 2018 2019 Lisandväärtus Tööjõukulud Kogutootlikkuse muutus (parem skaala) Tööjõukulude tootlikkuse muutus (parem skaala) Allikas: Statistikaamet Esialgsetel andmetel langesid 2019. aastal veonduse ja laonduse investeeringud 8,3%, kuid lõplik statistika võib näidata teistsugust pilti. Arvestada tuleb ka sellega, et raudtee-, muu maismaa-, vee- ja õhutranspordi valdkondade andmed on konfidentsiaalsed, mistõttu on kättesaadav info lünklik. 2014-2020 transpordi arengukava liigiülesed mõõdikud ja nende täitmine Kehtiva arengukava kõige kõrgema taseme mõõdik “transpordisüsteemi kasutajate rahulolu“ mõõdab kasutajate poolt rahvusvaheliselt neljale transpordisüsteemi valdkonnale (teede kvaliteet, 8  mln EUR Ettevõtete investeeringud % vea Eesti 600 50 õhutranspordiette- 40 500 30 võtted vedasid 400 20 2019. aastal 0,6 mln 10 300 0 sõitjat, mis oli 41% 200 -10 -20 vähem kui aasta 100 -30 varem. Suur 0 -40 2014 2015 2016 2017 2018 2019* vähenemine oli Investeeringud põhivarasse seotud Nordica Investeeringute muutus (parem skaala) kahjumlike liinide Allikas: Statistikaamet sulgemisega 2018. aasta lõpus ja Investeeringute jaotus tegevusalati 2019. aasta alguses. Muud 10% Maismaa- transport 51% Sektori palgatõus oli Laondus ja keskmisest kõrgem. veondust abistavad tegevusalad 39% Allikas: Statistikaamet Seoses COVID-19 üleilmse pandeemia ja sellest põhjustatud COVID-19 üleilmne eriolukorra, riigipiiride sulgemise ja riigisiseste liikumispiirangute pandeemia ja sellest kehtestamisega on 2020. aastal oodata suuremat majanduslangust1. põhjustatud Majanduskriisidega kaasneb alati negatiivne mõju ka tööturule ning liikumispiirangud sel korral sai enim kannatada teenindussektor. Liikumispiirangud mõjutavad oluliselt ka mõjutavad oluliselt ka transpordisektorit ning 2020. aastal on suuri transpordisektorit langusi oodata eelkõige reisijateveos. Riigipiiride sulgemise tõttu kahaneb enim lennundus- ja merendussektori reisijatevedu. Seoses ning 2020. aastal on riigisiseste liikumispiirangutega avaldub pandeemia mõju mh ka suuri langusi oodata riigisisesele transpordile (ühistransport). eelkõige reisijateveos. raudteede kvaliteet, sadamate kvaliteet, õhutranspordi kvaliteet) seitsme punkti skaalal antud hinnete keskmist. Vahetasemega on kehtiva arengukava sihttase juba saavutatud ning rahulolu on ajas kasvanud. Näitaja / Aasta Algtase Vahetase Vahetase Vahetase Sihttase 2012 2017 2018 2019 2020 1 Vastavalt Eesti Panga prognoosidele väheneb majanduse maht mullusega võrreldes 10%, kui viiruse levik taltub ega kehtestata taas piiranguid. Allikas: https://www.eestipank.ee/press/prognoos-esmaselt-kriisiabilt-tuleb-liikuda-pikaajalisema- plaani-juurde-10062020 9  Rahuolu indeks 4,47 4,875 N/A 55,7 56 Allikas: World Economic Forum, Global Competitiveness Index2 Transpordi liikide üleselt on transpordisektori energiakulu (teradžauli)3 kasvanud. Näitaja / Aasta Algtase Vahetase Vahetase Sihttase Vahetase Sihttase 2012 2016 2017 2017 2018 2020 Transpordisektori 33 141 33 974 puudub 33 000 348254 33 000 energiakulu (TJ) Allikas: 2013-2017 tulemused (Eurostat) On oluline tähele panna, et aastaks 2020 ei ole reaalne transpordisektori energiatarbimist võrreldes 2013. aastaga vähendada, küll on aga võimalik kasvutrendi aeglustada ning luua baas, millelt pöörata energiatarbimine langusesse 2020-ndatel. Küll aga on osaliselt eesmärke aidanud saavutada kütuseaktsiisi tõstmine, mis on suunanud osa tegelikult Eesti transpordis kasutatavast kütusest Läti bilanssi. Rahvusvaheliste reisijate arvu5 mõõdik näitab, et arengukava eesmärke selles valdkonnas saavutati edukalt. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Vahetase Sihttase 2012 2016 2017 2018 2019 2020 Rahvusvaheliste reisijate 12,55 14,36 14 15,60 16,17 15,1 arv (miljonit) Allikas: Statistikaamet6 Rahvusvaheliste reisijate arvu 2020.a sihttase oleks tavaolukorras kättesaadav ja teostatav (s.h. Tallinna sadama reisijate arv on kasvav ja lennujaama sihtkohtade arv suurenemas). Kaubaveo maht7 on vähenenud seoses geopoliitilise olukorra ja rahvusvaheliselt keeruliste suhetega, mida on hakatud transiidikomisjoniga parandama. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Vahetase Sihttase 2016 2018 2012 2017 2019 2020 Kaubaveo maht (miljonit 72 50,2 79 56,4 50,58 86 tonni) Allikas: Statistikaamet, tabel TS121 2 http://www3.weforum.org/docs/WEF_TheGlobalCompetitivenessReport2019.pdf 3 Mõõdik näitab seda, et vähem energiat kulutavate liikumisviiside osakaalu suurenemisega on transpordisektori energiakulu jäänud samaks, samal ajal kui liikuvus on suurenenud. 4 Konverteeritud TOE TJ. 5 Reisijate arvu kui mõõdiku puhul on vaja arvestada, et selle saavutamine sõltub eri arengukavade eesmärkide täitmisest. Eelkõige turismi arengukavaga tegevustega tekitatakse nõudlus Eesti kui sihtkoha järele, transpordi arengukava tegevuste eesmärk on tagada transpordisüsteemi võimekus seda nõudlust teenindada. 6 2017 andmed. Sadamad 10,75; Lennujaamad 3,26; Buss 2,16. 7 Kaubaveo mahu kui mõõdiku juures on vaja arvestada, et selle eesmärgi täitmine ei sõltu ainult Transpordi arengukava tegevustest. Transpordi arengukava tegevuste eesmärk on eelkõige tagada transpordisüsteemi võimekus neid mahte teenindada. See ei sisalda sadamate kaubakäivet, vaid ainult auto ja raudtee vedusid. 10 Transpordist tulenevate kasvuhoonegaaside (KHG) heitkoguste mõõdik8 – kestlik transport ja keskkonnamõjude vähendamine – on eriti aktuaalne maanteetranspordi kontekstis, sest see põhjustab enamuse transpordisektori koguheitest. Näitaja / Aasta Algtase Vahetase Vahetase Sihttase Vahetase Vahetase Sihttase 2005 2011 2016 2017 2017 2020 2018 KHG 2168 2269 2377 ≤ 2379 2 443,15 2 404,70 ≤ 2405 heitkogused (mln tonni CO2- ekvivalenti)9 Allikas: KHG inventuur, KeM 2018. aasta CO2 heitkoguste hulk (raporteeritud 2020) on mõnevõrra väiksem võrreldes 2017. aastaga. Vastavalt EKUK prognoosidele on 2020 sihttase saavutatav (prognoos CO2 heitmeteks 2180 kt CO2e aastal 2020). Tulemust aitas saavutada nn biokomponendi segamiskohustus vedelkütustes ja vastava statistikaga kauplemine turul. Samas on EKUK prognoos, et pärast 2020. hakkab CO2e heitkogused jälle kasvama saavutades 2026. aastaks 2017. aasta taseme. Seega oleks siiski tarvis rakendada edaspidigi meetmeid, mis panustaksid transpordisektori heite vähenemisele, et saavutada EL-i Jagatud Kohustuse Määruses sätestatud sihttase 2030. aastaks (ca 1800 kt CO2e transpordi heide, vs EKUK prognoos 2395 kt CO2e samal aastal). „Taastuvenergia osakaal transpordisektori energia lõpptarbimisest“ mõõdik on seotud eelkõige maanteetranspordi ja erasõidukitega, täpsemalt sellega, millist kütust sõidukipark tarbib. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Sihttase 2011 2016 2017 2018 2020 Taastuvenergia osakaal 0,2% 0,5% ≥ 3,0% 3,310% ≥ 10,0% Võttes arvesse olemasolevaid meetmeid (biometaani tootmise toetamine, biometaani liinikilomeetri toetus ja biometaani tanklate rajamise toetust) ning biokomponendi segamise kohustust (3,1% osakaal kütustest), mis hakkas kehtima 2018.aasta 1. maist, on võimalik prognoosida, et 2020. aasta sihtase on saavutatav. Kergliiklus11 Põhjamaad, eelkõige Soome ja Taani, on tuntud oma väga populaarse ja nutika rattakasutuse poolest. Eesti suurimates linnades puudub sisuliselt rattateede põhivõrgustik, millele rattakasutuse kasv ja 8 Eesmärgi saavutamisele aitavad kaasa ka liikuvuskorralduse põhimõtete rakendamine ja ühistranspordi kasutuse soodustamine 9 Eesmärk ei hõlma lennunduse CO2-heitkoguseid. Alg-, vahe- ja sihttaseme määramisel on lähtutud Eesti KHG heitkoguste inventuuri 1990-2010 aruandest (http://unfccc.int/national_reports/annex_i_ghg_inventories/national_inventories_submissions/items/6598.php); hetke tase on toodud vastavalt Eesti KHG heitkoguste inventuuri 1990-2011 aruandele (http://www.envir.ee/orb.aw/class=file/action=preview/id=1197603/NIR_EST_1990-2011_15042013.pdf). 10 Viimane info: https://appsso.eurostat.ec.europa.eu/nui/show.do?query=BOOKMARK_DS-1032380_QID_- 28EA9525_UID_- 3F171EB0&layout=TIME,C,X,0;GEO,L,Y,0;NRG_BAL,L,Z,0;UNIT,L,Z,1;INDICATORS,C,Z,2;&zSelection=DS- 1032380UNIT,PC;DS-1032380NRG_BAL,REN_TRA;DS- 1032380INDICATORS,OBS_FLAG;&rankName1=UNIT_1_2_-1_2&rankName2=NRG-BAL_1_2_- 1_2&rankName3=INDICATORS_1_2_-1_2&rankName4=TIME_1_0_0_0&rankName5=GEO_1_2_0_1&sortC=ASC_- 1_FIRST&rStp=&cStp=&rDCh=&cDCh=&rDM=true&cDM=true&footnes=false&empty=false&wai=false&time_mode=R OLLING&time_most_recent=true&lang=EN&cfo=%23%23%23%2C%23%23%23.%23%23%23 11 Euroopa Liidu struktuurivahenditest teostatud transpordiinvesteeringute mõjude hindamine (2017). Praxis. http://www.praxis.ee/wp-content/uploads/2016/09/EL-strukt.vahend.-transpordiinvesteeringute-m%C3%B5jude- hindamine.pdf 11 kasutamine põhineb. Põhjamaades on potentsiaali realiseerimiseks on linnades välja arendatud põhjamaade linnades eeskujulikud rattateede võrgustikud. Jalgratta kasutamine on täna Helsingis üle 10% tööle sõitudest ning põhjanaabril on eesmärk kasvatada seda lähikümnendil kuni 20%- le. Eestis on vastav näitaja 1-2% ning tegelik potentsiaal on täielikult veel realiseerimata. Rattakasutusel on oluline mõju tervisele. Sotsiaalmajanduslikes12 tasuvusarvutustes on rattakasutuse suurim mõju reeglina tervisemõju. Regulaarne rattakasutus elustiili osana parandab Maailma Terviseorganisatsiooni hinnangul tervist13 ja lisab tervena elatud eluaastaid. Autokasutuse osaline asendamine rattakasutusega avaldab positiivset mõju ka neile, kes ise ratast ei kasuta: väheneb müra ja paraneb õhukvaliteet. Suurim mõju on rattakasutusel keskkonnale, tervisele ja õhusaastatusele just suurtes linnades. Ratas on hea ajalise konkurentsivõimega liikumisviis, paljudel juhtudel isegi kiireim. Tipptundidel jäävad näiteks Tallinn kesklinna autoliikluse keskmised kiirused juba aastaid vahemikku 10 - 25 km/h. Tallinnas on ratturite kaardistuse põhjal keskmine rattakasutaja liikumise kiirus 16 km/h. Eesti on investeerinud kohalike omavalitsuste rattateede arendamiseks Euroopa Liidu vahendeid. Astuda tuleb järgmine samm ning välja arendada rattateede võrgustikud ka suuremates linnades. Antud suunda toetab tugevalt ka Euroopa Liidu 2021+ finantsperiood, kus säästva transpordi arendamine on prioriteet. Tartu linn avas 8. juunil 2019 rattaringluse, mis koosneb 69 rattaringluse parklast ja 750 jalgrattast. Nendest 500 on elektrilised ja 250 on tavalised rattad. Rattaringlussüsteemi rajamist rahastati Euroopa Regionaalarengu Fondi linnapiirkondade meetmest (1,7 miljonit eurot, sh linna omaosalus 250 tuhat eurot), Euroopa Komisjoni rahastatavast projektist SmartEnCity (ligi 800 tuhat eurot, sh linna omaosalus 133 tuhat eurot) ning Tartu linna eelarvest.14 Kehtiva transpordi arengukava mõõdik „jalgsi ja rattaga liikumise osakaal tööle käimisest“ näitab, et läbi kompaktse planeerimise ja säästvate liikumisviiside eelistamise saab kasvada inimeste osa, kes saavad tööle kõndida või rattaga sõita ja ka kasutavad seda võimalust. On tehtud eeldus, et tööle käimise viis kirjeldab ka üldisemalt liikumisviiside valikut. Näitaja/ Aasta Algtase Vahetase Vahetase Vahetase Vahetase Sihttase 2012 2016 2017 2018 2019 2020 Jalgsi ja rattaga tööl 20,2% 19,3% 18,9% 17,8% 18,1% 25% käimise osakaal Allikas: Statistikaamet Trend ei ole paljulubav. Senini ei ole suudetud teha piisavaid edusamme, et pidurdada autostumist ning suunata rohkem inimesi säästvaid liikumisviise kasutama. MKM oli perioodil 2014-2020 fokusseerinud 2 suuremat säästva liikuvuse arendamise projekti Tallinnasse – kohta kus on rahvastiku tihedus ja seetõttu ka potentsiaal selle trendi edendamiseks suurim (efektiivseim). Riigi poolsete toetusmeetmetena on Tallinna linnale antud mõõdiku täitmiseks suunatud kaks projekti. „Gonsiori tänava rekonstrueerimise“ projekti põhiline ehitusaeg jäi 2018 aastasse, 2019. aasta numbritesse selle projekti valmimine eriliselt panustanud ei ole. Teine, veelgi suurema mõjuga projekt „Vanasadama ja kesklinna vahelise liikuvuskeskkonna arendamine“, mis oli osa Tallinna peatänava projektist, oli kavandatud Tallinna Linnal ellu viia 12 Pyorailyn hyodyt ja kustannukset Helsingissa, Helsinki 2014, lk 5. 13 Health economic assessment tools (HEAT) for walking and for cycling, Methods and user guide, 2014 update, WHO, lk 1, lk 6. 14 https://tartu.ee/et/rattaringlus 12 esialgselt aastatel 2016-2018. Täna, 2020.aastal on selle projekti ellu viimine Tallinna Linna poolt peatatud. Programmperioodil 2021+ on MKM suurim väljakutse seega jalgrattateede võrgustiku välja arendamine suuremates Eesti linnades, sh Tallinnas. Raudteed15 Raudteeinfrastruktuuri seisukord on rahuldav, lõiguti hea. Alljärgnev iseloomustab üldistavalt raudteeinfrastruktuuri seisukorda täna:  Kiirus 120/80 km/h on võimalik ca 82% peateede pikkusest;  Kasutusel olevatest reisijate ooteplatvormidest 100% renoveeritud;  Kontaktvõrgu kogupikkusest on täielikult uuendatud ca 37%;  Raudteeülesõidukohtadest ca 70% on heas korras, ülesõidukohtadest on signalisatsiooniga varustatud ca 76%;  Teerajatistest (sillad, viaduktid, truubid) on üksnes ca 25% heas korras;  Rongide liiklusjuhtimissüsteemid (edaspidi ka LJS) on amortiseerunud 89% ulatuses raudteede pikkusest. Raudtee taristu probleemkohtadeks on ammendunud läbilaskevõime Balti jaamas ja Pääsküla-Keila raudteelõigul (mõlemal juhul üksnes tipptundidel). Ülejäänud raudteeliinid on pigem alakasutatud ning investeeringute teostamisel on vajalik tagada optimaalne taristu konfiguratsioon (st vajadusel vähendada jaamade ja/või raudteede arvu, konsolideerida samaväärseid jaamaparkide funktsionaalsusi ühte asukohta jne). Kaubaveoprognoosid 2020-2022 perioodiks näitavad osade kaubagruppide lõikes stabiilsuse saavutamist, kuid ülejäänud kaubagrupid (nt naftasaadused, põlevkivi) jätkavad endiselt langustrendis, seevastu reisijateveod jätkavad iga-aastaselt kasvamist. AS-i Eesti Liinirongid andmetel kasvab EVR-i infrastruktuuril reisijatevedu keskmiselt ca 4% aastas. EVR hinnangul luuakse 2018- 2022 perioodil suuremate investeerimisprojektide teostamisel (Tallinn-Balti jaama laiendamine, kiiruste tõstmine Tartu ja Narva suunal, reisijate liikumisviiside ühendamine jne) potentsiaal täiendavaks reisijatevedude kasvuks. Seejuures on vajalik rongipargi suurendamine. Aastatel 2021-2024 on kõige olulisemateks projektideks liiklusjuhtimissüsteemide uuendamine Tallinn-Tapa-Narva ja Tapa-Tartu-Valga-Koidula raudteelõikudel ning kontaktvõrgu rekonstrueerimise II etapp Tallinn-Aegviidu lõigul. Kaalumisel on raudtee edasine elektrifitseerimine või muu keskkonnasõbralikum alternatiiv. Kaalumist vajab pikas perspektiivis elektritoitesüsteemide vaheline ümberehituse vajadus 3 kV-lt 25 kV süsteemile. Edelaraudtee Infrastruktuuri AS raudteeinfrastruktuuril on kehvas seisus Lelle-Türi raudteelõik, kuhu on ettevõtja planeerinud Majandus- ja Kommunikatsiooniministeeriumi suuniste kohaselt aastatel 2019-2020 investeerida kokku 12,1 miljonit eurot. Rekonstrueerimistööd valmivad 2020. Raudteeinfrastruktuuri seisukorra hindamisel tuleb eristada kahte kapitalimahukat osa, rööbastee ja sellega seonduvad rajatised (nt. elektritoitesüsteemid) ja rongide liiklusjuhtimissüsteemid. Kui esimene valdkond on aastate jooksul saanud mõnevõrra enam tähelepanu ja investeeringuid, siis liiklusjuhtimiseks kasutatavatesse seadmetesse ja tehnoloogiatesse on investeeritud vähe. Seetõttu on AS- i Eesti Raudtee (edaspidi ka EVR) infrastruktuuril valdavalt kasutusel vananenud ja tööjõumahukad liiklusjuhtimise tehnoloogiad, mis oluliselt pärsivad võimalusi tööjõu efektiivsuse tõstmiseks. Kuivõrd EVR-i infrastruktuur on tegelikke veomahte ja tuleviku nõudlust arvestades mõnevõrra üledimensioneeritud, on koos liiklusjuhtimissüsteemide ümberehitusega hädavajalik 15 Avaliku raudteeinfrastruktuuri arendamist suunav tegevuskava 2018-2022 13 vähendada jaamateede ja pöörangute arvu, et tagada optimaalseim infrastruktuuri konfiguratsioon. See võimaldab omakorda tegevuskulude kokkuhoidu tulevikus. EVR arvestab enamasti raudteeinfrastruktuuri rajatiste (rööbastee, reisijate rajatised, liiklusjuhtimisseadmed) kasulikuks elueaks 20-30 aastat, erandina käsitletakse teerajatisi (sillad, viaduktid, truubid), mille kasulik eluiga on pikem (teatud juhtudel kuni 50 aastat). Kehtiva arengukava mõõdiku rongireisijate arvu kohta on edulugu. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Vahetase Sihttase 2012 2017 2017 2018 2020 2019 Rongireisijate arv 4 416 7 434 7 420 7 700 8 373 8 832 (tuhandetes) Allikas: Statistikaamet Perioodil 2014-2018 on rekonstrueeritud üle 121 kilomeetri raudteed. Arvestades planeeritavaid lisaarendusi (Tapa-Narva lõiguti kiiruse tõstmine 135 km/h; Balti jaama laiendus; Tallinn-Paldiski liiklusjuhtimissüsteemi uuendamine) võib olla 2020 sihttase saavutatav. Väga edukas on olnud ka „Raudteepeatuste ühendamise meede“, mille käigus 31-st raudteepeatusest on juba 28 projekti 2019. aasta lõpuks juba valminud. Tööde käigus on raudteepeatustes rajatud ratta- ja autoparklaid, ligipääsuks kergliiklusteid ja valgustust koos infotabloodega. Samas on aina enam kasvu piiravaks teguriks kujunemas rongide suur täituvus (eriti tipptundidel). Kasvu jätkamiseks on vajalik soetada täiendavalt ronge. Maanteed16 Eesti riigiteede pikkuseks seisuga 1.01.2020 on 16 609 km, millele lisandub sõltuvalt ilmastikust kuni 87,6 km ajutisi jääteid. Riigiteedest on 1 609 km (9,7%) põhimaanteed, 2 405 km (14,5%) tugimaanteed, 12 479 km (75,1%) kõrvalmaanteed ning muud riigiteed ja 116 km (0,7%) rambid ja ühendusteed. Kattega teede pikkus seisuga 01.01.2020.a oli 12 046 km, s.o 72,5% ja kruusateede pikkus 4 563 km e 27,5% riigiteede kogupikkusest. Riigiteedel on 1 010 silda kogupikkusega 25 909 m. Kaalutud keskmine aasta ööpäevane liiklussagedus (AKÖL) Eesti riigimaanteedel oli 2019. aastal 1033 autot/ööpäevas (2018. aastal oli AKÖL 995 autot/ööpäevas, muutus +3,8%). Tee liikide lõikes oli 2019. aasta keskmine ööpäevane liiklussagedus ja muutused võrreldes 2018. aastaga järgmised: põhimaanteede keskmine AKÖL 5602 autot/ööpäevas, muutus +3,8%, tugimaanteede keskmine AKÖL 1663 autot/ööpäevas, muutus +3,9%, kõrvalmaanteede keskmine AKÖL 321 autot/ööpäevas, muutus +3,5%. Alates 1995. aastast on riigiteedel mõõdetud teekatete tasasust 17 (IRI – International Roughness Index) ja inventeeritud teekatetel esinevaid defekte. Alates 1996. aastast on mõõdetud tee konstruktsiooni kandevõimet (FWD-Falling Weight Deflectometer ) ja 2001. aastast teekatte roopa sügavust. Uuendusena alustati alates 2011. aastast teekatte tekstuuri (makro- ja megatekstuur) mõõtmist koos teekatte tasasuse mõõtmisega ja selleks on kasutusel uus täpsem laserseade. Alates 2014 aastast mõõdetakse teekatte roopa sügavust samuti uue laserseadmega, mis võimaldab mõõta kogu sõiduraja laiust ala. Sõidukite teedel liiklemise mugavust näitab teekatte tasasus. Tasasuse muutumise graafikud näitavad pikas perspektiivis paranemist kõigi riigiteede liikide puhul. 16 Info allikast „Vabariigi Valitsuse korralduse „Riigiteede teehoiukava 2018–2022“ eelnõu seletuskiri (22.06.18)“ 17 IRI (International Roughness Index) on rahvusvaheliselt heaks kiidetud sõidumugavust iseloomustav väärtus, mis arvutatakse standardse sõiduki kere vertikaalsuunaliste võngete summana 100 m lõigule (ühik - mm/m). Tee on seda tasasem, mida väiksem on IRI väärtus. 14 Suurema liiklusega teedel on ebatasased katted ümber ehitatud ja nendel teedel teostatakse juba kulumisroobastest tingitud taastusremonti 18 (enamus põhimaanteedel). Väiksema liiklusega teede tasasuse parandamisega ei ole veel jõutud piisavalt tegeleda. Kogu kattega riigiteede võrgu keskmine IRI väärtus on aastatel 2008-2019 paranenud teekatete ehituseks, remondiks ja hoolduseks ette nähtud rahaliste vahendite taseme säilimise ja remondiobjektide otstarbeka planeerimise tulemusena. Põhimaanteede keskmise tasasusega võib rahule jääda. Tugi- ja kõrvalmaanteede keskmine tasasuse (IRI) näitaja osas toimub paranemine kuid keskmise tasasuse väärtus on kõrvalmaanteedel siiski liialt kõrge. Teekasutaja jaoks tähendab kõrge IRI väärtus suuremat ebatasasust, mistõttu teedel liikudes on sõidumugavus väiksem ja kulutused suuremaid. Transpordi arengukavas 2014-2020 on püstitatud eesmärk, et põhimaanteedel tee seisukorra taset hoida ning parandada ohutust ja liiklemise sujuvust. Tugi- ja kõrvalmaanteedel aga vähendada halvas ja väga halvas seisukorras olevate teede osakaalu. Joonisel 1 on kujutatud teede seisukorra taseme muutus aastatel 2008-2019 võrrelduna 2020 aastaks püstitatud eesmärgiga. Riigiteede seisukord (kattega teede tasasus IRI) 100% 90% 23% 22% 17% 31% 31% 28% 25% 37% 32% 32% 80% 70% 28% 25% 24% 24% 60% 24% 27% 26% 25% 25% 50% 28% 40% 26% 27% 27% 35% 22% 22% 25% 30% 22% 22% 19% 20% 10% 22% 22% 23% 25% 26% 27% 16% 19% 20% 20% 0% 2008 2012 2013 ALG 2014 2015 2016 2017 2018 2019 2020 SIHT Väga hea <1,5 mm/m Hea 1,5-2,6 mm/m Rahuldav 2,6-3,6 mm/m Halb/Väga halb >3,6 mm/m Joonis 1 Teede seisukorra taseme muutus ja 2020 aastaks püstitatud eesmärk Seisukorra paranemine on toimunud paari viimase aasta jooksul, mis on tingitud säilitusremondi raames väikese liiklusega väga ebatasastel teedel koos pindmaisega tehtavast profiiliparandusest, mis tõstab tuntavalt hinda, kuid annab ka arvestatavat efekti. Seda töömeetodit kasutatakse teedel, kus rekonstrueerimine ei ole tasuv töömeetod. Vastavalt Transpordi arengukavale 2014-2020 on teehoiukava koostamisel lähtutud põhimõttest, et Eesti teedevõrk on väljakujunenud ja oma tiheduselt praegustele vajadustele vastav. Väljakutseks on olemasoleva võrgu sõidumugavuse parandamine ja jätkuv teedevõrgu ohutumaks muutmine ettenähtud eelarvevahendite mahus. Vahendite optimaalse kasutamise eesmärgil tuleb tagada üleriigiline teedevõrgu säilimine, luues ohutumad tingimused liiklemiseks nii sõidukitele kui ka jalakäijatele. 18 Kattega teede taastusremont - remondi liik, mille eesmärgiks on kattega teedel katte ehk tee katendi pealmise kihi uuendamine kas ülekatte või olemasoleva katte freesimise ja uuesti paigaldamisega. Taastusremondi peamiseks põhjuseks on teekattesse tekkinud roopad. Taastusremondi tulemusel paraneb teede sõidetavus. Taastusremonti saab teha juhul kui tee katend ei ole defektne ja kandevõime on piisav. Väikest kandevõime puudujääki (kuni 10%) saab kompenseerida ülekattega. 15 Teehoidu on kavandatud tähtsuse järjekorras - säilitamine, rekonstrueerimine 19, ehitamine 20 ja teedevõrgu arendamine. Välisõhu strateegilise mürakaardi ja müra vähendamise tegevuskava on järjepidevad strateegilise planeerimise dokumendid, mida peab AÕKS §66 lg 2 kohaselt läbi vaatama iga viie aasta järel. Kuna maanteedel on välisõhus strateegilise mürakaardi tingimuseks liiklussagedus, siis on vaja iga viie aasta järel uus välisõhu strateegiline mürakaart ja selle alusel uus müra vähendamise tegevuskava luua. Müra, strateegilise mürakaardi, tegevuskava ja teiste müraalaste uuringute kohta leiab täpsustavat informatsiooni Maanteeameti kodulehelt (https://www.mnt.ee/et/tee/mura-ja-valisohk). Teedevõrgu säilitamise rahavajaduse suurus on saadud ASi Teede Tehnokeskus poolt 2011.aastal läbi viidud analüüsi alusel, kus leiti, et optimaalse teedevõrgu säilitamise (säilitusremont, taastusremont ja rekonstrueerimine) rahaline vajadus on 128 miljonit eurot aastas. Seni on teedevõrgu säilitusmeetmete koondmaht jäänud 10-20% alla soovitu, mida on vähesel määral kompenseerinud ehitusmeede. Alates aastast 2023 kavandatakse säilitamist optimaalsel tasemel ning summa kasvab iga-aastaselt Euroopa keskpanga inflatsioonieesmärgi võrra. Senise rahastuse juures on teedevõrgu remondivõlga suudetud hoida analüüsis tuvastatud tasemel ehk 840 miljoni euro juures. Planeeritud säilitusmeetmete koondmahu juures kavandatakse alates 2023.aastast remondivõla mõningast vähenemist. Kehtiva arengukava mõõdik „teetranspordi läbisõidu kasv ei ole suurem kui pool SKP kasvust“ näitab seda, et kui üldiselt on transpordinõudluse kasv seotud majanduskasvuga, siis läbi liikuvuskorralduse põhimõtete rakendamise ei ole see kasv suurem kui pool majanduskasvust. Näitaja / Aasta Algtase Vahetase Sihttase 2006-2011 2014-2018 2014-2020 SKP reaalkasv antud vahemikus -1% 25,7% 21 22% Teetranspordi läbisõidu (põhi-, -3% 14 <11% tugi- ja kõrvalmaanteedel) kasv Viimastel aastatel on läbisõidu kasv olnud ca 4% aastas. Perioodil 2014-2017 kasvas see kokku 14%. St 2014-2020 aasta planeeritud kasv on juba tänaseks ületatud. Me ei näe põhjust arvata et liikluskoormus lähiaastatel oluliselt väheneks (pigem kasvab viimaste aastate rütmis) mistõttu on ebatõenäoline et ka 2020 aastaks jääb läbisõidu kasv alla 11%. Küll on võimalik prognoosida lähtuvalt põhjanaabrite kogemusest, et teetranspordi läbisõidu kasv võtab madalama tempo pärast 2020. aastat. Riigimaanteede teekatte seisukorra (%) mõõdik kirjeldab erinevate seisukordade (kvaliteedi) osakaalu kattega riigimaanteedel. Aasta / Seisukord Teekatte seisukord (osakaal)* Väga hea Hea Rahuldav Halb/väga halb 19 Rekonstrueerimine – remondi liik, mille eesmärgiks on tee muldkeha, katendi või selle osa asendamine koos tee juurde kuuluvate rajatiste asendamise või remontimisega ja liiklusohutuse parendamine sh ristmike ümberehitamine jne. Tee rekonstrueerimisel otsustab tee omanik liiklusohutuse parendamise vajaduse ja rakendatavad meetmed ning tee juurde kuuluvate rajatiste asendamise ja remondi vajaduse. 20 Ehitamine - eesmärk on muuta liiklemine ohutumaks, suurendada tee läbilaskevõimet ja seega soodustada transiitliiklust, parandada keskkonnaseisundit või soodustada piirkonna arengut. Tee ehitamise tulemus on uus tee, tee klassi muutmine, uus ristmik või lisarada. 21 SKP jooksevhindades (RAA0061): 2014a – 9 835 mln €; 2018a – 12 365 mln €; 2017a/2014a = 25,7%. Teetranspordi läbisõit (milj km): 2012 - 8780,6; 2013 - 9034,7; 2014 – 9471,6; 2015 – 9975,8; 2016 – 10387,3; 2017 – 10811,3; 2018 – 11197,1 (5980); 2019 6212https://www.mnt.ee/sites/default/files/survey/labisoit_2018.pdf; https://www.mnt.ee/sites/default/files/content-editors/Failid/Liiklusloendus/2019/2_ll2019_aruanne.pdf. Uut kokku teetranspordi läbisõidu numbrit pole. 16  Algtase 2012 19% 22% 27% 32% Vahetase 2017 25% 26% 25% 25% Vahetase 2019 27,4% 27,1% 23,2% 22,3% Prognoos 2020 25% 27% 23% 25% Sihttase 2020 20% 35% 28% 17% Allikas: Maanteeamet Halvas seisus teede osakaal võib suureneda, kuna suured investeeringud on juba sellel perioodil tehtud ja väljakutseks jääb riigieelarvelistest vahenditest teehoiuga taset säilitada. Eraldi välja tuues TEN-T võrgustiku teede seisukorda, siis viimastel aastatel tehtud suurtele investeeringutele taristusse on olukord väga hea. 2019 aastal moodustasid halvas seisus teed vaid 0,7% kogu teede võrgust. Euroopa liidu 2014-2020 finantsperioodi lõpuks (2023) võib halvas seisus TEN-T teede osakaal taas veidi tõusta, kuna paljud investeeringud on tehtud ca 10 aastat tagasi ning seetõttu võib kehvemas seisus teede osakaal taas tõusma hakata, kuid ilmselt jääb see siiski perioodi lõpus tugevalt alla 11%. Liiklusohutuse üldine olukord maanteedel on alates 2009. aastast vähehaaval paranenud. Sellest ajast alates toimub aastas keskmiselt 1400 inimkannatanuga liiklusõnnetust ning ka hukkunute arv kõigub aasta aastalt 56 hukkunu piires kolme viimase aasta keskmisena. Liikluskahjude vähenemise ehk ohutuse mõõdik mõõdab hukkunute arvu kolme aasta keskmisena Eesti teedel. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Vahetase Sihttase 2012 2017 2017 2018 2020 2019 Hukkunute arv 89 62 ≤ 65 62 55,6 ≤ 50 (kolme aasta keskmine) Allikas: Maanteeamet 2020.a sihttaseme saavutamine on pigem ebatõenäoline. 2017. aasta lõpuga on küll vahetase saavutatud, kuid väike hukkunute arv oli pigem anomaalne. 2020 sihttaseme saavutamine ei ole tõenäoline. Ilmselt jääb tase viimase kolme aasta keskmisena 50-60 hukkunu vahele. Kuigi paranemise ruumi maanteetranspordi rohelisemaks muutmisel on, näitab „ökonoomsete sõidukite osakaal uute sõidukite soetamisel“ mõõdik positiivset trendi. Klass CO2 Arv 2017 Osakaal Algtase A,B,C Sihttase Vahetase Vahetase Sihttase 2017 2011 osakaal 2017 2018 2020 2017 2019 A <90 670 3% 20% 54% 30% 54,2% 60% (sh 50% A 10%) B 91-110 3712 14% C 111-130 9483 37% D 131-150 6598 26% 21,5% E 151-170 3488 14% 13,8% 17  F 171-200 1464 6% 3,3% G >201 292 1% 1,6% Allikas: Maanteeamet Vahetase on saavutatud ning ka juba 2020. aasta sihttase. Seoses elektriautode turule tulekuga (hinna pariteet suhtes sisepõlemismootoritega sõidukitega on saavutatav 2020-2023) ning üldise survega keskkonnanõuete osas, paraneb eeldatavasti suhe A-C klassi autode osakaalu osas veelgi. Samuti on maanteetranspordist pärinev PM10-heite osas saavutatav 2020. aasta sihttase, kuna aastal 2016 oli juba 350 t ja hetkel näitab mõõdik vähenemistrendi. Näitaja / Aasta Algtase 2011 Sihttase 2017 Vahetase 201822 Sihttase 2020 PM10-osakeste heide (tonni) 576,9 630 400,81 560 Ka „liiklusmürast mõjutatud inimeste arv“23 mõõdiku osas täidetakse kõigi eelduste kohaselt kehtiva TAK sihttaset kuna liiklusmürast mõjutatud inimeste arv näitab langustrendi ning sihttase on juba saavutatud. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Sihttase 2012 2017 2017 201824 2020 Liiklusmürast mõjutatud 333 600 313 700 < 333 600 300 831 < 333 600 inimeste arv Merendus ja veeteed Riigile kuuluval äriühingul AS Saarte Liinid on parvlaevasadamaid kaheksateist: Kuivastu, Virtsu, Heltermaa, Rohuküla, Sviby, Sõru, Roomassaare, Ringsu, Triigi, Kihnu, Munalaid, Manilaid, Abruka, Papissaare, Vikati, Naissaare, Laaksaare ja Piirissaare. Suuremates sadamates nimetatutest on tingimused ka kaubalaevade vastuvõtuks. Roomassaare sadam on Saaremaa suurim kaubasadam, kus on välja ehitatud kaid ka reisilaevadele, naftatankerile, kalalaevadele ja purjejahtidele. Ringsu sadam on võimeline teenindama laevu, mis tagavad saare elanikele ühenduse mandriga. Sadamaid haldab AS Saarte Liinid, kelle põhiülesandeks on regionaalsete sadamate haldamine ja arendamine, eelkõige liinilaevaühenduste pidamise võimaluste kindlustamine mandri ja asustatud saarte vahel. Enamus sadamatest asub seejuures rannikumeres ning madalad veeolud, liikuvad setted ja vahelduv ilmastik loovad iga sadama asukohale oma eripära ning tehnilised nõudmised. Ohutuse tagamise seisukohalt teevad muret kaitserajatiste nagu lainemurdjate või muulide ning kaldarampide osaline puudumine Rohuküla, Sviby, Ruhnu ja Vikati sadamates. Muus osas on sadamate hetkeolukord väga hea, välja arvatud lõpetamata tööd programmperioodi 2014-2020 Ühtekuuluvusfondi projekti raames Rohuküla ja Heltermaa sadamates (rajamata on uute parvlaevade teised kaikohad). Jäämurde teenus Laevaliiklus peab kulgema sujuvalt, võimalikult efektiivselt ja stabiilselt aastaajast olenemata. Meteoroloogilistel tingimustel ja eeskätt talvise navigatsiooni ajal tekkival jääl on meretranspordile väga suur mõju. Eriti olulise kaaluga on see transiidivoogude teenindamisele, kui kasutatakse Eestit läbivat transpordisüsteemi. Ka ajutine tagasilöök sujuvas laevaliikluses mõjutab otseselt ja oluliselt kaupade liikumist Eesti sadamate kaudu ja seega nii logistikaahelas tegutsevate ettevõtete tulusid kui 22 Korrigeeritud 08.04.2020 EKUK 23 Hinnanguline ja lähima sajani ümardatud inimeste arv, kes elavad ehitistes, mille auto- rongi- ja lennuliiklusest tuleneva müra päeva-õhtu-öömüraindikaatori Lden arvsuurused ületavad 55 dB. Hinnang antakse Tallinna ja Tartu linna ning suurema liiklussagedusega maanteelõikude kohta iga 5 aasta tagant. Maanteede ääres 331, Tartus 50 600, Tallinnas 249 900 2424 Viimane info. 18 maksulaekumisi ja SKT näitajaid. Seetõttu on oluline tagada stabiilne laevaliiklus transiidi kui Eesti ühe olulisema majandusmootori toimimiseks ja pakkuda kvaliteetseid jäämurdeteenused sarnaselt naaberriikidega. Teenuse eest maksavad veeteede kasutajad veeteetasu, mis laekub riigieelarvesse. Eesti erinevates osades on mitmesuguseid jääolusid. Kui Tallinna ja Muuga laht võivad mõnel talvel olla jäävabad, siis Pärnu lahele, Väinamerele ja Narva lahele tekib jää igal talvel olenemata külmast või pehmest talvest. Statistika põhjal võib oletada, et Eestis on ka tulevikus oodata nii mõõdukaid kui ka külmi talvi. Seepärast on rahvusvaheliste konventsioonide ja kokkulepete kohaselt mitmete meresõiduohutuse- ja merekeskkonnakaitse alaste kohustuste täitmiseks vaja Eesti riigil tagada alalises valmisolekus olevate spetsiaalsete laevade, sh jäämurdjate olemasolu. Jäämurdetööde korraldajaks on Veeteede Amet, mille peadirektor määrab piirkonniti jäämurdetööde perioodi alguse ja lõpu vastavalt jääoludele. Vajalikud kulud planeeritakse iga-aastaselt Majandus- ja Kommunikatsiooniministeeriumi valitsemisala eelarves. Eesti jäämurdevõimsus põhineb jäämurdjal Tarmo (ehitatud 1963), mitmeotstarbelisel laeval EVA 316 (ehitatud 1980) ning multifunktsionaalsel jäämurdjal Botnica (ehitatud 1998) ja Pärnu lahel lisavõimsuse tõstmiseks varujäämurdjal. Jäämurdja Tarmo osas on vajalik teha lähiaastatel otsus, kas renoveerimise või uue jäämurdja soetamise kasuks. Lennujaamad Tallinna lennujaamas on hetkel peamine ülesanne tulla toime kasvavate mahtudega (s.o lendude arv ja reisijate arv) moel, kus kliendid on endiselt teenustega rahul. Lennujaama reisterminal on kavandatud teenindama 2,8 miljonit reisijat aastas, 2019 aastal teenindas lennujaam 3,3 miljonit reisijat. Kasvavate mahtude juures on ohutus ja turvalisus tagatud. Samuti tootlikkuse ning efektiivsuse näitajad kasvavad. Tähtsamad projektid: Ühtekuuluvusfondist toetatava Tallinna Lennujaama projekti I etapp (tehnika) on lõppenud ning II etapi (s.o lõunaalad) ehitustööde hange on välja kuulutatud II etapi käigus viiakse aeronavigatsiooniteenus vastavusse EASA regulatsiooniga, CAT II, Reisijate terminali ja perrooni laiendamise teostatavuse uuring, massiivne digitaliseerimine ja automatiseerimine (IT hüpe), GH [maapealsed teenused] turu avamisega seotud projektid, reisijate terminali parendustööd ntx ABC (automatiseeritud piiriületus), lennujaamas osutatavate teenuste koordineerimiskeskuse loomine (kaasab lisaks lennujaamale veel vedajad, EANS, GH jt olulised partnerid), detailplaneeringud lõunaaladele ja terminali ja Ülemiste hotelli vahelisele alale. Kõiki regionaalseid lennujaamu ühendav on EANS ja AS TLL ühisprojekt – irdtorn [ingl.k Remote Tower] ja aeronavigatsiooniteenuse osutamine. Tartu lennujaamas on peamine fookus efektiivsusel, suuremad projektid hetkel puuduvad. Kuressaares lisaks efektiivsusele toimub hooldeangaari ehitus ja lennuliiklusala rekonstrueerimise ettevalmistamine. Kärdla lennuvälja renoveerimistööde käigus kaeti lennurada uue kihiga, uuendati ruleerimisteid, kaasajastati tulede süsteem lähenemisprotseduuride nõuete täitmiseks. Tööde tegemise ajaks suleti ajutiselt kogu lennurada, v.a tagati teenindus vaid regulaarlendudele ja meditsiinilistele esmaabilendudele. Lisaks juurutati GNSS lähenemisprotseduurid, mis teatud määral võib leevendada halbadest ilmaoludest tingitud regulaarlendude tühistamisi ja hilinemisi. Projekt lõppes jaanuaris, 2019.a. Pärnu lennujaama osas otsus Vabariigi Valitsus, et riik eraldab Pärnu lennujaama rekonstrueerimiseks kokku kuni 20 miljonit eurot. Pärnu lennujaama rekonstrueerimisega toetatakse eelkõige turismi ja ühendusi lähinaabritega ning saartega. Rekonstrueerimistööde tellimine peatus 2019. aastal esitatud vaidlustuste tõttu ning jätkub 2020. aastal. Pärnu lennujaam on võimalik kasutusele võtta pärast rekonstrueerimistööde lõppu ja vajalikke sertifitseerimise toiminguid 2021. aastal. Kihnu lennuväljale ehitati kopteri maandumisplats (päästeoperatsioonideks). Kihnu üks rada on ära kaotatud (Kihnus oli kaks ristuvat rada). Kihnu lennuväljal regulaarseid lennuühendusi ei ole. Ruhnu lennuraja taristu osas probleeme pole. 19 Veondus ja laondus Veonduse ja laonduse tegevusalal tegutseb üle 5600 ettevõtte. Suurima veomahuga maismaa reisijateveos on Tallinna Linnatranspordi AS, mis osutab bussi-, trammi- ja trolliliiklusteenust Tallinnas. Riigisisest reisirongiliiklust raudteel korraldab AS Eesti Liinirongid (ELRON). Kaubavedude alal on juhtivateks logistikafirmadeks AS Schenker, DSV Transport AS ja DHL Estonia AS. Suurimaks ettevõtteks transpordisektoris on AS Tallink Grupp, mis tegeleb reisijate ja kauba merevedudega. Olulisim sadamateenuste pakkuja on AS Tallinna Sadam, mis haldab viit sadamat: Vanasadam (sh Vanasadama jahisadam), Muuga sadam, Paldiski Lõunasadam, Paljassaare sadam ja Saaremaa sadam. Õhutranspordi valdkonna suurimaks ettevõtjaks on rahvusvahelise reisijate- ja kaubaveoga tegelev AS Nordic Aviation Group, kelle positsioon turul lähiaastatel võib väheneda suure konkurentsi tõttu Tallinna Lennujaamast sihtkohtade pakkumisel. Suurimaks ettevõtteks posti- ja kullerteenistuses on AS Eesti Post (Omniva). 2019. aastal transpordisektori hõive tõusis. Edasised arengud hõive osas sõltuvad suuresti üldisest majanduse käekäigust, pikemas perspektiivis on OSKA raporti kohaselt oodata mõningast hõive langust. 2019. aastal langesid Eesti transpordiettevõtete veomahud kuuendat aastat järjest, olles kümnendiku võrra madalam kui aasta varem. Samas kasvas sõitjakäive 2018. aastaga võrreldes 7,7%. Maanteetranspordi veomaht kasvas 2%. Raudteevedudel toimus 2019. aastal 24% langus. Ühistranspordi kasutajate koguarv jäi 2019. aastal praktiliselt samaks (kasv vaid ca 0,6% töölkäimistest). Ühistransport Kuni 2018. aasta 1. jaanuarini korraldasid maakonnaliinidel ühistransporti ( veetransport ja bussivedu) maavalitsused ja kaugliinidel Maanteeamet, rahvusvahelist bussitransporti ning regionaalset õhu ja veetransporti Majandus- ja Kommunikatsiooniministeerium. Pärast maavalitsuste tegevuse lõpetamist võttis ülesanded üle Maanteeamet, kes asus korraldama transporti maakonnaliinidel ning regionaalset õhu ja veetransporti. Maakonna- ja kaugliinidel korraldatakse transporti vedajaga sõlmitud avaliku teenindamise lepingute alusel ja kommertspõhimõtetel (vedaja initsiatiivil ja äririskil). Selle tulemusena on ühistranspordi planeerimine läinud terviklikumaks ja paremaks. Valla- või linnaliine korraldab kohaliku omavalitsuse üksus. Ühistranspordi (s.o bussi-, parvlaeva- ja riigisiseste lendude korraldamise eest vastutab Maanteeamet) korraldamise keskne koondumine ühte asutusse aitab paremini kaasa integreeritusele erinevate liikumisviiside ja liinide vahel ning paremate infosüsteemide (s.h reaalaja) ja ühtsete piletisüsteemide arendamisele ja efektiivsemale liikuvuse korraldamisele. Eestis on viis veeliikluse kaugliini: mandri ja Saaremaa (Muhumaa) vahel (Virtsu-Kuivastu laevaliin), mandri ja Hiiumaa vahel (Rohuküla-Heltermaa laevaliin), Saaremaa ja Hiiumaa vahel (Sõru-Triigi laevaliin), mandri ja Ruhnu vahel (Ringsu-Munalaid, Ringsu-Pärnu parvlaevaliinid). Maakonnasisesteks veeliikluse liinideks on ühendused mandri ja Kihnu ning Manija saare vahel (Kihnu-Pärnu, Kihnu-Munalaid ja Munalaid-Manilaid laevaliinid), mandri ja Vormsi saare vahel (Rohuküla-Sviby laevaliin), mandri ja Piirissaare vahel (Laaksaare–Piirissaare laevaliin), ning Saaremaa ja Ruhnu vahel (Ringsu-Roomassaare parvlaevaliin). Reisijate arv sadamates oli 2019.a üle 2,6 miljoni reisija. Laevareisijate arvu kasvu prognoos on 4-5% aastas. Dotatsioonivajadus veeliikluse maakonnasisestel ja kaugliinidel oli 2019. aastal 22 447 475 eurot, mille vajadus tõenäoliselt kasvab iga-aastaselt. 2020. aastal on eeldatav dotatsioonisumma 23 832 000€. Eestis on kolm lennuliikluse kaugliini: mandri ja Saaremaa vahel (Kuressaare-Tallinna lennuliin), mandri ja Hiiumaa vahel (Kärdla-Tallinna lennuliin) ning mandri (Pärnu) ja Ruhnu vahel (seotud maakonnaliiniga Ruhnu, Kuressaare ja täiendavalt Pärnu vahel). Hiiumaa liini teenindab avaliku 20 teenindamise lepingu alusel Leedu vedaja JSC aviation company „TRANSAVIABALTIKA“ kehtivusega 30.05.2024. Saaremaa liini hange on vaidlustuste tõttu läbiviimisel ning seniks teenindab ka seda liini sama vedaja. Maakonnasisesteks lennuühendusteks on lennuliin Saaremaa (Kuressaare) ja Ruhnu vahel. Pärnu- Ruhnu vedaja on Diamond Sky OÜ, Ruhnu ja Kuressaare vahelist ühendust teenindab lennuk üksnes talvisel perioodil 01. oktoobrist - 30. aprillini, vedajaks on Diamond Sky OÜ avaliku teenindamise lepingu alusel kehtivusega 30.09.2024. Kihnu ja Pärnu vaheline ühendus ei ole regulaarliin. Lennud Kihnu-Pärnu vahel võivad erandkorras toimuda vaid ajal, kui parvlaevaühendus Kihnu saarega on veeliikluses ilmnenud takistuste tõttu peatunud. Lennureisijate arv regionaalsetes lennujaamades oli 2019. aastal 32 462. Regionaallennuliikluse tagamiseks oli 2019. a dotatsioonivajadus 2 975 559 eurot, mille vajadus tulevikus tõenäoliselt kasvab juba seoses 2 lisanduva lennuki liinile toomisega. Reisijatevedu raudteel korraldab Majandus- ja Kommunikatsiooniministeerium, kes on sõlminud avaliku teenindamise lepingu AS-iga Eesti Liinirongid (Elron). Seoses uute reisirongide soetamisega ning raudteetaristu rekonstrueerimisega on 2019. a reisijate arv raudteel tõusnud ligi 8,3 miljoni reisijani aastas. Raudteeveo-ettevõtja on seadnud eesmärgiks pakkuda Eesti tingimustele vastavat innovatiivset, kiiret, mugavat, turvalist ja keskkonnasõbralikku ühistransporditeenust, mis on hea valik maanteetranspordi (auto või bussi) asemel. 2019. aastal oli riigisisese reisijateveo maht ligi 5,58 miljonit rong/kilomeetrit. Kulud liiniveo korraldamiseks olid ligi 40 mln eurot, sh tulud riigi sihtfinantseeringuna ligi 21,6 mln eurot ja piletitulud liiniveo korraldamisest ca 18,6 mln eurot. Riiklik toetus liiniveo korraldamiseks oli 12,1 mln eurot (21,6-st miljonist). Järgnevatel aastatel arvestatakse ca 3-4% muutuvkulude (kütus, rongide hooldus) kasvuga, mida on võimalik katta suuremast reisijate arvust tuleneva täiendava piletituluga. Alates 2019. aasta detsembrist pikenesid Tallinn-Riisipere rongiliinid Turbani, millega kaasnes samuti täiendav avaliku liiniveo toetuse vajadus. 2021. aastal suureneb Elroni poolt tasutav raudteeinfrastruktuuri kasutustasu Edelaraudtee Infrastruktuuri ASi raudteeinfrastruktuuril ca 1,2 miljoni euro võrra, kuna kasutustasu arvestusse lisanduvad Lelle-Türi raudteelõigu remondikulud. Reisijatevedu maakonnabussiliinidel (sh tasuta liinid) on kasvanud seoses tasuta ühistransporditeenuse pakkumisega. 2019. oli dotatsiooni eelarve 49 198 000 eurot, 2020.a dotatsioon maakondlikus bussiliikluses on kavandatud 49 198 000 eurot. Ja järgnevatel aastatel kasvab vajadus veelgi ehk 2021. aastal lisaks 2,87 mln eurot, 2022. aastal 3,6 mln eurot. Sõitjate arv tõusis 2018 vs 2017 11% ja 2019 vs 2018 15%. Seoses tasuta ühistranspordiga maakonnaliinidel on prognoositud sõitude arvu kasvu ca 10-20% aastas. Edaspidi prognoositakse sõitjate arvu kasvu 2-5% aastas. Säästva transpordi arendamise eesmärgil25 toetati perioodil 2007–2013 Tallinna trammitaristu arendamist ja uute trammide soetamist, et suurendada välisõhu kaitstust. Trammiliini nr 4 taristu rekonstrueerimiseks ning trammiliinide nr 2 ja 4 projekteerimiseks ja ehituseks lõigul Pae tänav – Ülemiste peatus tehti väljamakseid 31,2 miljoni euro ulatuses (sellest ELi osa: 25,1 miljonit eurot e 80%). Projektide tulemusena rekonstrueeriti 7,677 km trammiteed, sh rajati 0,869 km uut trammiteed, rekonstrueeritud depooteed ja depoo sissesõidu teed 2,934 km, rekonstrueeriti 6 veoalajaama, parandati ligipääsu ja ohutust 8 peatuses ning asendati 24 km ulatuses kontaktvõrgu kaablit. Projekti tulemused võimaldasid võtta trammiliinil nr 4 kasutusele uued trammid. Uuringu „Tallinna ühistransport 2015“ kohaselt on trammi eelistajate arv kasvanud 13%-lt (2013) 18%-le (2015). Samas on 2016. a valminud Tallinna elanikkonna rahuolu-uuringu (OÜ Faktum & Ariko, 2017) kohaselt trammikasutajate osatähtsus ühistranspordi kasutajate hulgas mõnevõrra vähenenud, ulatudes ainult 6%ni, mis on madalaim määr alates 2012. aastast. Uute trammide kasutuselevõtt 2015. a alguses on vähendanud projektiaruannete põhjal energiakulu ning CO2 emissiooni kolm korda, kuid täpseid mõõtmisi ei ole CO2 emissiooni ega mürataseme kohta tehtud. Märgatavalt on vähenenud taristu hooldus- ja remondikulud: kui 2012. a olid need projektiaruande kohaselt 654 000 eurot, siis 2015. a eelarves 25Euroopa Liidu struktuurivahenditest teostatud transpordiinvesteeringute mõjude hindamine (2017). Praxis. http://www.praxis.ee/wp-content/uploads/2016/09/EL-strukt.vahend.-transpordiinvesteeringute-m%C3%B5jude- hindamine.pdf 21 kavandati neid mahus 125 000 eurot. Seega tuleb tõdeda, et taristuinvesteering on küll loonud võimaluse laiemaks mõjuks, kuid mõju ilmnemiseks on vaja Tallinnas jätkata kogu säästva liikumise kontseptsiooni juurutamist, sh ühistransporditeenuste kvaliteedi parandamist. Ühistranspordikeskuste väljakutsed on eelkõige seotud tasuta ühistranspordiga kaasneva suurenenud reisijate nõudlusele vastava teenuse osutamise tagamisega. Lisaks tuleb ühistranspordikeskustel enam tähelepanu pöörata ühistranspordi liinivõrgule ning konkurentsivõimele, et tagada inimestele mõistlikud liikumisvõimalused ja vähendada inimeste sundkulutusi transpordile. Sealhulgas läheneda ühistranspordi korraldusele vajaduspõhiselt ning arendades nõudluspõhist transporti, kus mõistlik. Suurimad väljakutsed on seotud hajaasustusega ning perifeersetes piirkondades elavate inimeste kulutõhusa liikuvuse korraldamisega ning vajaduspõhise liinivõrguga. Tiheasustuses on suurim väljakutse sõiduautode kasutamise kasvu ohjeldamine läbi kvaliteetse ühistransporditeenuse pakkumise. Vajadus üleriigilise reisijate veoteenuse kvaliteedistandardite jaoks. Kehtiva arengukava mõõdiku ühistranspordi kasutamise osakaal töölkäimisel näitab, et olenemata tasuta ühistranspordist tulnud reisijate kasvust, jääb sihttase tõenäoliselt saavutamata. Peamiseks põhjuseks on regionaalselt ebaühtlane ühistranspordi kasutatavus, s.h Tallinna ühistranspordi kasutajate langev osakaal. Näitaja / Aasta Algtase Vahetase Sihttase Vahetase Vahetase Sihttase 2012 2017 2017 2018 2020 2019 Ühistranspordi 22,8% 20% ≥ 24,0% 20,7% 20,6% ≥ 25,0% kasutajate osakaal töölkäijatest Vahetase 20% Allikas: Statistikaamet Tuleb täiendavaid meetmeid kasutusele võtta eesmärgi saavutamiseks. Kuna suurim osa ühistranspordi kasutajates elab Tallinna linnas, siis on langus mõneti seletatav Kopli trammitee rekonstrueerimisega ning samuti Haabersti ringristmiku ehitusega, mis häirisid normaalset ühistranspordi kasutust. Positiivsena mõjub antud trendile maakondlike bussiliinide reisijate kasv 2018. aastal ning Tallinnas trammiliini pikendamine lennujaamani, kus antud ühendusega saab katta nii Ülemiste piirkonna töötajate ja lennureisijate liikumisvajadusi. Samas kogu ühistranspordi kasutajate hulgas on maakonnaliinide reisijate hulk ja lennujaama tramm väikse mõjuga. Trendi mõjutab negatiivselt ka pidev valglinnastumine, mis toob kaasa auto kasutuse kasvu ning hõreasustusega aladel loobuma ühistranspordi kasutusest. Ühtekuuluvuspoliitika fondide rakenduskava 2014-2020 tulemused Allolevas tabelis on välja toodud eelnevas tekstis mitte käsitletud, kuid ÜF rakenduskavas olevate mõõdikute vahetulemused. Näitaja nimi Mõõtühi Algata Saavutustase Sihttas Vaheta Sihttas k se 2018 lõpus e 2018 se e 2023 (KUMULATIIV NE; KOOS 2019 EELMISTE AASTATEGA). Rekonstrueeritud või km 0 185 75 197,4 215 uuendatud maanteelõikude 22 kogupikkus, millest TEN-T Halvas seisundis teede % 12% 2,2% - 0,7% 11% osakaal TEN-T võrgustiku teedest Uute maanteelõikude km 0 17 0 19,59 46 kogupikkus, millest TEN- T Investeeringuid teinud lennujaa 0 0,5 0 0,5 1 lennujaamade arv m Jäämurde teenuse sadam 0 0 0 0 1 osutamiseks vajalike rekonstrueeritud sadamate arv Parandatud ühendusega peatus 0 28 10 30 30 raudteepeatuste arv Rekonstrueeritud või km 0 141,48 50 160,38 200 uuendatud raudteelõikude kogupikkus, millest TEN- T Soetatud/paigaldatud tk 0 1 1 1 1 läbivalgustusseadmed raudtee-piirile Keskkonnasõbralike ja tk 0 1,43 2 1,57 5 vähese CO2-heitega transpordisüsteemide, sh siseveeteede ja meretranspordi, sadamate ning eri transpordiliikide ühendamiseks/parandami seks rekonstrueeritud/ehitatud objektid 23  Lisa 6. Hinnang Transpordi ja liikuvuse arengukavaga kaasnevatele mõjudele 1.1. Kavandatav Kirjeldatakse iga mõju avaldavat muudatust või meedet (neid võib olla 1-n) ning esitatakse alljärgnev informatsioon muudatus või meede Transpordi ja liikuvuse arengukava 2021-2035 on Transpordi arengukava 2014-2020 jätkuarengukavaks. Transpordi ja liikuvuse arengukava eesmärgiks on tagada jätkusuutlik, ohutu, turvaline, juurdepääsetav, kaasav, kiire ja tehnoloogiliselt uuenduslik transpordisektor ja taristu ning konkurentsivõimeline logistika. Peamised fookused transpordi ja liikuvuse arengukavaga on keskenduda transpordi digitaliseerimisele, paremale liikuvuskeskkonnale, sundliikumiste vähendamisele, ajalise distantsi vähenemisele tõmbekeskuste vahel, ohutusele, kvaliteetse, ligipääsetava ja kestliku taristu arendamisele ja korrashoiule ning transpordist põhjustatud keskkonnakoormuse vähendamisele. Mõjuvaldkond Alavaldkond, kus Milles mõju avaldub Mõju avaldumisega seotud asjaolude kirjeldus Mõju olulisus (väike; keskmine; suur) Koondhinnang muudatuse või mõju meetmega Ulatus Sagedus Sihtrühma Ebasoovitavate olulisusele kaasnevad mõjud suurus mõjude risk avalduvad Keskkonnamõjud Looduskeskkond ja Sisaldub arengukava lisas 2. Sisaldub arengukava lisas 2. s s s s oluline Elukeskkond Sotsiaalsed, sh Tervishoiukorraldus -Ligipääsetavus Sihtrühm on Eesti elanikkond. k k s v oluline demograafilised ja inimeste tervis -Erinevad vajadused mõjud -Tervis Tervikliku transpordisüsteemi arendamisel on võimalik Tööturg parandada kõigi inimeste juurdepääsu avalikele teenustele. Liikumisharjumuste muutumise ning Osalemine keskkonnasäästlike valikute tõttu pikeneb nii inimeste ühiskondlikus elus keskmine eluiga kui tervena elatud eluiga. Mõju Paraneb inimeste tervis, kuna ühest küljest muutub võrdõiguslikkusele ja liikumisvõimaluste avardudes lihtsamaks sotsiaalhoolekandele tervishoiuteenuste ning sportimisvõimaluste kättesaadavus, teisest küljest on positiivsed tervisemõjud ka jalgsi, jalgrattaga ning ühistranspordiga liikumise suurenemisel (viimane tähendab alati mingis ulatuses ka jalgsikäiku ühistranspordi peatusesse ja sealt sihtpunkti). Transport on väga tihedalt seotud tööhõivega ja inimeste võimalustega tööl käimiseks. Töötamine tähendab juba praegu ja veelgi rohkem tulevikus kaugtöö tegemist, mis on positiivne regionaalarengu seisukohast kuna toetab suurtest keskustest eemal 1  elamist. Selle trendi soodustamiseks on vaja toimivat ja inimeste vajadustele vastavat ühistransporti, mille korraldamisel arvestatakse tegelike tööaegadega ja sellega, et inimestel on võimalus tööle ja koju saada mõistliku ajakuluga. Selleks arendatakse Eestis nõudetranspordi teenust. Nõudetranspordi arendamisega (sealhulgas erinõuded transpordivahenditele) maapiirkondades on võimalik oluliselt parandada inimeste liikumisvõimalusi ja - vajadusi. Nõudetranspordi osaks oleks ka Sotsiaalministeeriumi poolt korraldatav sotsiaaltransport, millega saab senisest paremini parandada liikumispuudega inimeste võimalusi (nõude- )ühistransporti kasutada ning ühiskonnaelus osaleda. Nõudetranspordi arendamine ja rakendamine parandab ka näiteks vanurite, lastega reisijate jt inimeste liikumisvõimalusi. Mõju Piirkondade Suurem kohalike omavalitsuste Kuigi 2020. aasta perspektiivis püsiühendust s k k k oluline regionaalarengule tasakaalustatud kaasatus kohaliku Saaremaaga rajada ei plaanitud, jätkatakse pikemat regionaalareng transpordiprobleemide perspektiivi silmas pidades püsiühenduse lahendamisele ning planeerimisprotsessi uuel transpordi arengukava ühistranspordi teenusstandardite perioodil. üleriigiline ühtlustamine. Regionaalne ühistransport tagatakse valdavalt avaliku teenusena. MKMi ülesanne on kohalike Regionaalne ühistransport korraldatakse nii, et tagatud omavalitsuste ja oleks juurdepääs sotsiaalsele infrastruktuurile ja ühistranspordikeskuste inimestel on võimalus toimepiirkonna keskuses tööl koordineerimisel ning targalt käia. Seejuures arvestatakse liinivõrgu kujundamisel transporti juhtides korraldada inimeste erinevaid liikumisvajadusi tulenevalt soost, juurdepääs teenustele, vanusest või muudest teguritest. Uute transpordi haridusasutustele ja töökohtadele teenuse valikuna lisandub tulevikus nõudetransport. ning tagada ohutu ja ligipääsetava Nõudetranspordi pilootprojekt teostatakse Saaremaal, taristu olemasolu olemasoleva Kagu-Eestis (Põlva- ja Võrumaa) ning Pärnumaal. ressursi piires. Sealjuures tuleb Riik koostöös kohalike omavalitsustega eelisarendab pöörata tähelepanu ühistransporditeenuseid ning kergliiklusteede transpordipoliitika kooskõlale võrgustikku ja erinevate liikumisviiside sujuvat regionaalpoliitikaga. koostoimet. Riik ja kohalikud omavalitsused kujundavad integreeritud transpordi ja asustuse planeerimise, ühistranspordi ja kergliikluse eelisarendamise kaudu energiatõhusat ja väikese CO2 jalajäljega transpordisüsteemi, mille tulemusel väheneb sundliikumise vajadus, isiklikust autost sõltuvus ning areneb energiatõhus liikluskultuur. 2  Transporditaristul on oluline mõju ka Eesti erinevate ranna- ja maapiirkondade arengule ning sealsele ettevõtlusele. Mõju Leibkondade Majanduse toimimise eelduseks Liikuvusmudeli muutusega paranevad s s s k oluline majandusele toimetulek ja on hea transpordikorraldus. Hea liikumisvõimalused, mis suurendab tööjõu mobiilsust. majanduslikud transpordikorraldusega ja – See puudutab nii maanteetransporti kui ka otsused taristuga piirkonnad on rongiliiklust. Kiire rongiliiklus ja rongiliikluse aktiivsema majandustegevusega. tihendamine võimaldab senisest enam igapäevaseid Ettevõtluskeskkond liikumisi (tööle, kooli) suurema vahemaa tagant kui see ja ettevõtete Olulisel kohal on kaupade vedu. seni võimalik on olnud. Ka ühistranspordikorralduses tegevus Logistika loob majandusse kavandatavad muudatused peaksid tagama selle, et lisandväärtust. Eelduseks on regionaalsed ühendused ja liinivõrk vastaks senisest Infotehnoloogia kvaliteetne ja ohutu enam nõudlusele ja inimeste vajadustele. Seega on sektori areng transporditaristu ning inimestel suurem võimalus leida oma võimetele ja digitaliseerumine. soovidele vastav sobiv töökoht. Teisalt on ettevõtetel suurem võimalus leida endale sobiv tööjõud. Selle Inimeste teadlikumad valikud tulemusel kasvab majanduse üldine efektiivsus, mis liikumise planeerimisel mõjutavad peaks aitama kaasa SKP kasvule. kaudselt autotööstust, kütuste tarbimist, jalgrattaparkide teket Kavandatava arengukavaga panustatakse jmt. rahvusvaheliste ühenduste parandamisse, mis loob võimaluse teenindada senisest rohkem välisturiste. Kõige suurem arenguruum on seejuures raudteeühenduste osas. Arengukava perioodi jooksul valmib ka Rail Baltic. Ka lennutranspordis oodatakse nii reisijate arvu olulist kasvu kui ka rohkem otseühendusi. Kulude kokkuhoidu on võimalik saavutada nendes leibkondades, kes saavad üle minna säästlikele liikumisviisidele või kasutavad säästlike autosid. Transpordi ja logistika digitaliseerimine on suure potentsiaaliga valdkond ning see kiirendab majanduskasvu. Lähikümnenditel on transpordisektoris oodata murrangulisi muudatusi, kus suur osa turust muutub seoses tehnoloogia arengu (nt isejuhtivad sõidukid) ning uute ärimudelitega (nt sõidujagamine, nõudetransport, digitaalne tarneahel). Võidavad eelkõige infotehnoloogia võimalusi kasutavad ärimudelid. Mõju riigi Suhted välisriikide ja Schengeni piiriturvalisuse nõuded Eesti asub Schengeni alal ning transporditaristu k k k v oluline julgeolekule ja rahvusvaheliste arendamisel arvestatakse muuhulgas ka Schengeni välissuhetele organisatsioonidega Riigikaitse objektide kaitse piiriturvalisuse nõuetega rahvusvahelise kaubaveo ja transpordi taristul reisijateveo osas. Vastavate arenduste puhul kaasatakse erinevaid partnerasutusi (sh õiguskaitseasutusi, teadusasutusi) ja erasektorit 3  Rahvusvaheline koostöö ohutuse ja turvalisuse hindamiseks ning ühise naaberriikidega võimekuse kasvatamiseks (sh tehnilise võimekuse suurendamise kaudu). Euroopa Liidu direktiivid Transporditaristu arendamisel on oluline pöörata Erinevates rahvusvahelistes tähelepanu ka lähimate naaberriikide arendustele, et organisatsioonides liikmena suurendada vastastike turvameetmete kehtestamise osalemine, Eesti seisukohtade kaudu nende tõhusust ja mõju. Ühtlasi tuleb pöörata kujundamine, koostöö lepetest tähelepanu rahvusvahelisele koostööle ulatuslike tuleneva rakendamine jmt hädaolukordade lahendamiseks. On mitmeid transpordi ja keskkonnaga seotud ELi direktiive, mille Eesti peab üle võtma. Samuti on mitmeid rahvusvahelisi strateegiaid/raamdokumente, millest Eesti oma transpordipoliitikas lähtuma peab, näiteks erinevad Euroopa Liidu strateegiad: Koostoimelisi intelligentseid transpordisüsteeme käsitlev Euroopa strateegia - samm koostoimelise, ühendatud ja automatiseeritud liikuvuse tagamise suunas, arvestades Euroopa Komisjonis koostatatavat Sustainable & Smart Mobility Strategy1 (asendab senist White paper 2011 – „Roadmap to a Single European Transport Area“), The Sustainable Development Agenda, 2009 - Future of Transport, Maritime Transport Strategy, 2008 - Greening transport: new Commission package to drive the market towards sustainability, 2007 - Logistics: Keeping freight moving, Keep Europe moving jne. Mõju riigiasutuste Avaliku sektori Riigi kulutused transpordisektoris Mõju riigiasutuste ja kohalike omavalitsuste K k k k oluline ja kohaliku rahastamine, sh kavandatavate investeeringute korraldusele ei ole suur. Ühistranspordi liinivõrkude omavalitsuse kulud ja tulud elluviimiseks. Transpordi taristu optimeerimine eeldab vastava võimekuse tekitamist ja asutuste investeeringute rahastamise arendamist ühistransporti korraldavates asutustes. korraldusele, Asutuste konkureerimine teiste Transpordi efektiivse ja targa planeerimise (sh suurema kuludele ja omavaheline tulemusvaldkondadega. haldusvõimekuse) saavutamiseks hakatakse transporti tuludele koostöö planeerima tarnspordiliikide üleselt. Ühistranspordi korralduse (nt õpilasveod, sotsiaaltransport jmt) Riigiasutuste asukoha valikul/ riigi teenuste kulumudelite ja rahastamise üle ümberkorraldamisel tuleb arvestada selle vaatamine. kättesaadavust inimestele ja mõju liikumisnõudlusele, sellest tulenevalt on vajalik Asutuste vahelise koostöö suunata enam vahendeid ühistranspordi oodatav tõhustumine. korraldamiseks. Võib muutuda ka teehoiu maht riigi ja konkreetsete kohalike omavalitsuste jaoks seoses riigi 1 https://ec.europa.eu/inea/en/news-events/newsroom/sustainable-smart-mobility-strategy-take-part-consultation 4  ja kohalike teede 2018.aastal läbi viidud auditi tulemustega. Kuigi muudatused tervikuna ei ole tõenäoliselt ulatuslikud, võib mõju teatud kohalikele omavalitsustele olla märkimisväärne. Arengukava koostamisel ja elluviimisel on vajalik erinevate ministeeriumite ja ka kohalike omavalitsuste vaheline tihedam koostöö ning kokkulepped. Edasine analüüs Kõiki eelpool kirjeldatud mõjusid on analüüsitud arengukava koostamise käigus Majandus- ja Kommunikatsiooniministeeriumi poolt. Miks on mõju Kooskõlastusringile saadetavas dokumendis tuleb nelja kriteeriumi (ulatus, sihtrühma suurus, sagedus, ebasoovitavate mõjude risk) abil selgitada, miks algatuse ettevalmistaja ei pea mõnda ebaoluline? tuvastatud mõju oluliseks ja/või miks ta ei kavatse mõnd oluliseks hinnatud mõju täiendavalt analüüsida. 5  Lisa 7. Ülevaade valdkonna arengukava mõõdikute metoodikast ja allikatest Esmalt toome välja arengukava üldeesmärgid ja mõõdikud ning seejärel kirjeldame peatükkide kaupa mõõdikuid ja nende saavutamise eeldusi. Arengukava elluviimise eesmärk on tagada kogu transpordisüsteemi ligipääsetavus, ohutus ja nutikus, vähendades samaaegselt transpordisektori kasvuhoonegaase, suunates kaubavood maanteedelt keskkonnahoidlikele alternatiividele, s.o raudteele ja merele. Reisijateveos suurendame ühistranspordi kasutamist ja aktiivsete liikumisviise (käimine, jalgrattasõit jms) ning mikromobiilsuse (nt elektritõukerattad, monorattad) kasutamise kasvu sõiduautode ja neile rajatud ruumi arvelt.  Transpordi kasvuhoonegaaside heite CO2e vähendamine 13% vrdl 2005. aastaga 2030. aastal või EL transpordipoliitika valge raamatu tase (1720 kt CO2e1). Täpsustub (karmistub) juunis 2021, kui EK tuleb välja uue ESR kohustuse ettepanekuga kliimaseaduse ja Euroopa rohelise kokkuleppe valguses. Lineaarsel KHG vähendamisel, kui võtta eesmärgiks EL roheleppe trajektoor -90% KHG transpordis aastaks 2050, oleks transpordisektori 2035. a sihttase 1350 kt CO2e ehk 38% võrra vähenemine võrreldes 2018. aasta tasemega. o Sihttaseme saavutamise eeldused: Kui rakendada kõiki arengukavas planeerituid poliitikaid, sh fiskaalpoliitilisi, on võimalik prognooside kohaselt saavutada transpordisektori CO2e vähenemine ca 1650 kt-ni 2035. aastaks ehk 23% võrra võrreldes 2018. aastaga. ● Tonnid transpordiliigi lõikes (maantee ja raudtee)2 – kaubaveo modaalnihke mõõtmiseks energiatõhusamale veoliigile, oodates raudteeosakaalu kasvu. ○ Sihttaseme saavutamise eeldused: Eesmärk sõltub suuresti Rail Baltica täiendavast kaubamahust. Raudtee elektrifitseerimisega kasvab modaalnihe minimaalselt raudtee kasuks. Suurema nihke saavutamiseks tuleb teha eraldi tööd, sh luua laadimisplatse ja uusi koostöömudeleid veondusettevõtetega. Lähtuvalt Eesti kaubavedude logistikast ning tootmisettevõtete paiknemisest on läbi riiklike meetmete täiendavalt võimalik suunata raudteele hetkel maanteel transporditavaid kaupu: killustikud (graniit ja lubjakivi killustik), puittooted (puitpellet, saematerjal, majad, paber, vineer), teravili jm. Raudteevedu aitab eelkõige vähendada Tartu-Tallinna maantee koormust, samuti Tartu-Jõhvi lõigu koormust ning ka Tartust lõuna poole jäävate maanteede koormust. Siseriikliku kaubaveo raudteele suunamise abil on võimalik aastas kokku hoida 44 miljonit raskeveoki veokilomeetrit. 1 EL Transpordipoliitika valge raamat 2011 seab eesmärgiks vähendada transpordi kasvuhoonegaase 2030. aastaks 20% võrra võrreldes 2008. aastaga. Eesti 2008. a transpordi KHG CO2 heide oli ca 2150 kt CO2e. St 20% vähenemine tähendab sihttaset 1720 kt CO2e 2030. aastal. ESR kohustus samaks aastaks on (n.ö solidaarne teiste ESR sektoritega) 1832 kt CO2e. 2 Maanteetranspordi veosekäive 2019. aastal 4 794 427 tuhat tonn-km; raudteetranspordi veosekäive 2019. aastal 2 160 293.2 tuhat tonn-km, sh 1 886 828.9 tuhat tonn-km. 1  ● Rahvusvaheline kauba- ja reisijateveo maht (meretransport) – meretranspordi efektiivsuse mõõtmiseks. ○ Sihttaseme saavutamise eeldused: Eestis peavad kehtima rahvusvaheliselt konkurentsivõimelised ja diferentseeritud veeteetasud, piisav jäämurdevõimekus, logistikaahela digiteerimine. ● Liikumisviiside jaotus % transpordiliigi lõikes3 reisijateveos säästvatele liikumisviisidele modaalnihke mõõtmiseks. ○ Sihttaseme saavutamise eeldused: olulised linnaruumilised sekkumised, sh rattateede põhivõrgustiku rajamine, uute kergrööbastranspordi liinide käivitamised jmt koos ühistranspordi korraldusmudelite tõhustamise ja ümberkorraldamisega. Eesmärgi täitmiseks võib olla vajalik ka maksualane sekkumine. ● Vähendada liikluses (kõikide transpordiliikide lõikes) hukkunute ja raskelt vigastatute arvu poole võrra ehk 30 hukkununi kolme aasta keskmisena 2035. aastaks liiklusohutuse indikaatorina. ○ Sihttaseme saavutamise eeldused: sihttase on saavutatav jätkates ohutusalaste taristuinvesteeringutega jm sekkumistega, mis on ette nähtud kehtivas liiklusohutusprogrammis. Hästi ühendatud Eesti. Konkurentsivõimeline transport ja taristu 2035. aasta sihttase: Taastuvenergia osakaal transpordis 22,7%; Transpordi energiakulu 33 500 TJ. Mõõdiku lühikirjeldus: Taastuvenergia osakaalu arvestatakse vastavalt Riiklikule energia ja kliimakavale (REKK 2030), prognoosides 0,85% kasvu aastas. Osakaal saavutatakse Taastuvenergia Direktiivi kontekstis, kuid koguenergia arvestuses jääb osakaal kõigi eelduste kohaselt väiksemaks. Sihttaseme saavutamise eeldused: eelduseks on raudtee elektrifitseerimine, avaliku sektori tellitava ühistranspordi alternatiivkütustele (sh linnades elektrile ja parvlaevade alternatiivkütustele) viimine. Ohutud teed Maanteedel vigastatute ja hukkunute indikaator Mõõdiku lühikirjeldus: Üldine indikaator on peatükis 3.2. Töötame 2021-2022 välja detailse IRAP süsteemile sarnaneva indikaatori, kooskõlastades metoodikat ka Euroopa Komisjoni poolt samas ajaraamis välja töötatava indikaatoriga. Sihttaseme saavutamise eeldust pole võimalik praegu öelda. 3 TT230 hõivatud soo ja töölkäimise viisi järgi: ÜT, jalgsi ja rattaga osakaalude tasemed - 38,% [2020]; 45% [2025]; 53% [2030] 55% [2035]. 2 Raudteel säästlikult, ohutult ja kiirelt 2035. aasta sihttase Reisirongi ühendusaeg (Tallinn-Tartu 1:30; Tallinn-Narva 1:45; Tallinn- Viljandi 1:30; Tallinn-Pärnu 0:45); Reisijate arv 20 miljonit Mõõdiku lühikirjeldus: Kirjeldab rongitranspordi konkurentsivõimet – rongireisijate arvu kasvuks on eeldus aegruumiliste vahemaade oluline vähenemine ehk mh ka investeeringud taristusse, sh selle ohutusse. Sihttaseme saavutamise eeldused: Reisijate kasv on saavutatav täiendava rongikoosseisuga, uute sihtkohtadega (Haapsalu), 1520mm raudtee kiiruste tõstmisega 160 km/hh ning RailBaltica käivitamisega. Mereriik Eesti, innovatiivne ja keskkonnahoidlik meretransport 2035. aasta sihttase: Kauba- ja reisilaevade arv Eesti lipu all (500 ja suurema kogumahutavusega), üle 35 laeva; Meretranspordisektori ettevõtetes loodava lisandväärtuse kasv aastas on suurem kui SKP (%) kasv (Eesti Panga majandusprognoos 2019-2022 andmetel SKP (%) eeldatav kasv aastal 2022 2,4%). Mõõdiku lühikirjeldus: Mõõdik kirjeldab Eesti meretranspordisüsteemi konkurentsivõimet. Sihttaseme saavutamise eeldused: Taseme saavutamiseks peab Eesti maksu- ja sotsiaalsüsteemi keskkond olema piisavalt konkurentsivõimeline, et laevu Eesti lipu alla meelitada. Selleks tuleb teha regulaarseid mõjuanalüüse meetmete tulemuslikkusest ning korrigeerida nii sotsiaalsete tagatiste kui muude hüvede toimivust. Eesti linnulennult. (otse)lendudega ühendatud Eesti Rahvusvaheliste alaliste otse- ja ühe ümberistumisega ühenduste arvu kahekordistamine ehk 2035. aasta sihttase 40-55 aastaringset regulaarliini4 ning; Kaubavedu kolmandatest riikidest 100,000 tonni aastas. Mõõdiku lühikirjeldus: Kirjeldab, kuivõrd ühendatud Eesti muu maailmaga on, sh on eelduseks toimivale ettevõtluskeskkonnale. Sihttaseme saavutamise eeldused: Tuleb luua tõhusa lennukaupade jaotuskeskuse Tallinna lennujaama AS poolt, misläbi kasvatame lennunduse kaubamahtusid eelkõige kaugemate sihtkohtadega (eeskätt Aasia). 4 2019. aastal on 28 alalist otseühendust. Täpne indikaatori sihttase ja arvutamise metoodika on väljatöötamisel, arvestades ACI ja IATA ühenduvusindekseid. 3  Lisa 8. Arengukava seos teiste arengudokumentidega Arengukava koostamisel on tagatud eesmärkide kooskõla riigi strateegiliste arengudokumentidega, mis kehtivad arengukava jõustumisel, sealhulgas horisontaalsetest arengustrateegiatest tulenevate riigi säästva arengu ja konkurentsivõime eesmärkidega. Arengukava koostamisel on arvestatud ka transpordipoliitikaga seotud riigi strateegiliste arengueesmärkidega, mis on arengukava koostamise ettepaneku esitamise hetkel sõnastatud järgmistes arengudokumentides: „Kliimapoliitika põhialused aastani 2050“.1 Aastaks 2050 tuleb eelkõige Eesti energiamajanduse, sealhulgas transpordi süsinikuheidet otsustavalt ja oluliselt vähendada. Transpordisaastet peab vähendama sundliikumise vajaduse kahanemisele ning ühistranspordi, kergliikluse ja vähese süsinikuheitega transpordisüsteemi arendamise tulemusel. Samuti peab kütusekulukate sõidu- ja kaubaautode kasutamise hinnas hakkama adekvaatselt kajastama nende kasutusega keskkonnale põhjustatavat kahju. Soodustatakse kodumaiste bio- ning teiste taastuvenergiaressursside laialdast kasutuselevõttu nii elektri- ja soojusenergia tootmisel kui ka transpordikütustena. Avaliku sektori investeerimis- ja maksupoliitikaga mõjutatakse ökonoomsete sõidukite, säästlike transpordikütuste ning ühiskasutuses sõidukite eelistamist. Riigihangetes eelistatakse ökonoomseid sõidukeid ja säästlikke alternatiivkütuseid. Avaliku sektori eeskujul suurendatakse tarbijate teadlikkust. Riik ja kohalikud omavalitsused edendavad transpordikorraldust, mis lähtub ühtsest tervikust ega sõltu haldusjaotusest ning ühistranspordiettevõtte omandivormist. Eesmärgi saavutamiseks kaalutakse transpordi kogumõjust ja kasvuhoonegaaside heite vähendamisest lähtuva maksupoliitika kujundamist üldist maksukoormust suurendamata. Muudame maailma: säästva arengu tegevuskava aastaks 20302. Kavandatav arengukava aitab saavutada eelkõige eesmärki „jätkusuutlikud ja kaasavad linnad ja asulad“ – ehk tagada 2030. aastaks kõikidele turvalised, taskukohased, kättesaadavad ja säästvad transpordisüsteemid ja parandada liiklusohutust, eelkõige ühistranspordi osakaalu suurendamise abil ja pöörates rohkem tähelepanu ebasoodsas olukorras olevate inimeste, naiste, laste, puudega inimeste ja vanemate inimeste vajadustele. Aga ka eesmärke „meetmed kliimamuutuste ja nende mõjudega võitlemiseks“, „ookeanide ja merede säästev kasutamine“, „ebavõrdsuse vähendamine“ ning „tervis ja heaolu, sh liiklusõnnetustes hukkunute ja vigastuste vähendamine 50% võrra“. Eesti julgeolekupoliitika alused käsitlevad transporti peatükis 3.4 „Ühiskonna toimepidevus ja sidusus“. Rõhutatakse, et „transpordi infrastruktuuri arengu planeerimisel ja väljaarendamisel arvestatakse majandus- ja sotsiaalarengu ning riigikaitse vajadustega. Esmatähtis on rekonstrueerida või välja ehitada üle-euroopalise transpordivõrgustiku osaks olevad sadamad, lennujaamad ning raudtee- ja maanteevõrk. Transpordi infrastruktuuri toimepidevuse tagamisel on oluline riigi ja erasektori koostöö. Transpordisüsteemi toimepidevuse kindlustamisel ja kaitsel rakendatakse rahvusvaheliste standardite kohaseid julgeoleku- ja ohutusnõudeid.“. 1 https://www.envir.ee/sites/default/files/kpp_2050.pdf 2 https://www.riigikantselei.ee/sites/default/files/content- editors/Failid/SA_eesti/saastva_arengu_tegevuskava_2030_uro_et.pdf 1 Eesti spordipoliitika põhialused aastani 2030 sätestab, et aastal 2030 vastab eestimaalaste vaimne ja kehaline tasakaal ning heaolu Põhjamaade tasemele ning Eestis on kehalist aktiivsust soodustav elukeskkond koos kaasnevate teenustega, mis toetavad inimeste tervena elatud eluea pikenemist ja eneseteostust ning majanduskasvu. Liikumisel ja spordil on oluline ning kasvav roll eestimaalaste elujõu edendamisel, rikka elukeskkonna loomisel ja Eesti riigi hea maine kujundamisel. Rikka elukeskkonna all peetakse silmas sotsiaalselt vastutustundlikult arendatud ning kergesti kohandatavat liikumise ja spordiga seotud teenuspõhist ettevõtlus- ning kultuuriruumi. Vastavalt „Kultuuripoliitika põhialused aastani 2020“ on kultuuripoliitika tihedalt seotud mitme teise riikliku poliitikavaldkonnaga, sh haridus-, majandus-, sotsiaal-, keskkonna-, tööhõive-, lõimumis-, regionaal-, turismi- ja välispoliitikaga. Mitmekülgne kultuurielu mõjutab olulisel määral Eesti elanike heaolu, siinse elukeskkonna kvaliteeti ja riigi rahvusvahelist konkurentsivõimet. „Kultuuripoliitika põhialused aastani 2020“ sätestab, et riik väärtustab elukeskkonda kui tervikut, mis koosneb nii ehitatud ja kujundatud keskkonnast kui looduskeskkonnast. Kvaliteetsel ehitatud keskkonnal on oluline roll riigi säästva arengu eesmärkide saavutamisel. Kvaliteetse ehitatud keskkonna aluseks on asjatundlikud ruumilised otsused planeerimisel ja projekteerimisel. Eesti Euroopa Liidu poliitika määratleb peamised põhimõtted, millest valitsuse Euroopa Liidu poliitika lähtub. Transpordile on pühendatud selles eraldi peatükk, kus on rõhutatud tänapäevaste ühenduste loomise vajalikkust Balti riikide ja ülejäänud Euroopa vahel (Via Baltica, Rail Baltic), ühenduste parandamist EL-i väliste naaberriikidega, transpordituru avamist ja liberaliseerimist, kliima- ja energiapoliitika eesmärkide saavutamist, ning „saastaja maksab“ printsiibi rakendamise aspekte. Kogu transpordisektoris on oluline rakendada reegleid ühtselt ning vähendada keskkonna- ja halduskoormust, mida aitab saavutada e-lahenduste laialdasem kasutuselevõtmine. Pikemas perspektiivis peaks üleeuroopaliste ja rahvusvaheliste infosüsteemide kasutamine võimaldama paberdokumentidest loobuda ning kasvuhoonegaaside heitmeid vähendada, säilitades samal ajal transpordisektori tõhususe. Eesti merenduspoliitika 2012–2020 on dokument, mis teatud peatükkidega sisustab uut arengukava ning sisaldus lisas 4. „Meretranspordipoliitika laiendatud visioon“. Eesti 2035+ strateegia3. Eesti 2035+ strateegiaga arvestatakse nii palju kui paralleelselt võimalik on, sest käesoleva arengukava koostamise hetkel pole Eesti 2035+ strateegiat vastu võetud, kuid tegemist on niivõrd olulise ja horisontaalselt kõiki valdkondi, s.h transporti, käsitleva arengudokumendiga. Muuhulgas pöörame tähelepanu Eesti 2035+ raames kaardistatud järgmistele megatrendidele: - Linnastumine suureneb, kasvab rahvastiku ränne - Elanikkond vananeb, rahvaarv kahaneb Euroopas, kuid kasvab mujal maailmas - Loodusressursid vähenevad ja keskkonnaseisund halveneb (kliimapõgenikud, looduslikud surnud tsoonid kasvavad, 2035.a kannatab pool maailmast veepuuduse all) - Globaalne poliitiline olukord muutub (demokraatia taandub, ida tõuseb ja Euroopa muutub Aasia tagahooviks, sõjaliste konfliktide oht) 3 https://www.riigikantselei.ee/et/Eesti2035 2  - Ärimudelid ja töö olemus muutub (töö muutub automatiseeritumaks) - Tehnoloogia muutub järjest kiiremini Energiamajanduse arengukava aastani 20304. Eesti energiamajanduse arengukava üldeesmärgi täitmine aastaks 2030 on transpordi valdkonnas iseloomustatav selle tulemuse kaudu, et sõidukipargi kütusekulu aastal 2030 ei ületa 2012. aasta taset (8,3 TWh). „Kliimamuutustega kohanemise arengukava aastani 2030“.5 Transport on keerukas süsteem, mis koosneb taristust, transpordivahenditest, veoteenusest, inimestest, kes liiguvad, ja kaupadest, mida liigutatakse ning sellega seotud teenustest, teabest, õigusnormidest ja organisatsioonidest. Inimeste liikumine jaguneb kohalikuks, regionaalseks, üleriigiliseks ja rahvusvaheliseks vastavalt liikumisvajadusele (liikumiskaugusele ja -suundadele). Peamised tegurid, mida kliimamuutused transpordisüsteemis mõjutavad, on järgmised: ühenduskindlus; ühenduskiirus, reisi kestus, tarneaeg; transporditaristu ja transpordi ITK seadmete seisund ja töökindlus, hooldusvajadus; liiklusohutus ja turvalisus; kaubaveo ja ladustamise ohutus; transpordi ja liikuvuse hind; liikumis- ja sõidumugavus; transpordi energiakulu ja energiatõhusus. Eri transpordiliike võivad ilmastikuolud mõjutada erinevalt. Äärmuslike ilmastikunähtuste mõjul võivad transpordiühendused katkeda, ajakulu tavapärase olukorraga võrreldes kasvada, reisijad, sõidukid või transpordi tehnoseadmed viga saada, kaubad rikneda või kahjustuda ning ohtlike veoste puhul keskkond kahjustatud saada. Tõrked transpordisüsteemis mõjutavad omakorda paljusid teisi eluvaldkondi. Alaeesmärk 7. Kliimamuutuste mõju tõttu ei ole vähenenud elutähtsate teenuste kättesaadavus ega hoonete energiatõhusus. Tehniliste tugisüsteemide valdkonnas on kavas suurendada tehniliste tugisüsteemide valmisolekut mistahes ilmastikuolude korral, mis on suunatud transporditaristu (sh maanteede, raudtee ja sildade) kasutuskindluse ja äärmuslikes ilmastikuoludes läbitavuse tagamisele. Koostatava Põllumajanduse ja kalanduse valdkonna arengukava aastani 20306 on transpordiga seotud meetmed, mis on seotud taimekaitsetöödega transporditaristu hooldusel ja suurte transporditaristuprojektide puhul geneetilise ressursi säilitamisega. Muuhulgas on transporditaristul oluline mõju ka Eesti erinevate ranna- ja maapiirkondade arengule ning sealsele ettevõtlusele. Üleriigiline planeering „Eesti 2030+“ viitab põhimõtete alapunktis, et transpordil on oluline roll üleriigilise planeeringu peamise eesmärgi saavutamisel. Planeeringu peatükk 4 „Head ja mugavad liikumisvõimalused“ käsitleb toimepiirkondade sisest liikumist, linnapiirkondade liikumist, liikumisvõimaluste tagamist hajaasustuses, toimepiirkondade omavahelist sidustamist, ühendusi välismaailmaga ning erinevate transpordiliikide tasakaalustatud kasutamist. Eesti keskkonnastrateegia aastani 2030 väärtustab loodusvarade säästlikku kasutamist. Keskkonnastrateegia põhieesmärgiks on inimesi rahuldava tervisliku keskkonna ja majanduse arendamiseks vajalike ressursside tagamine ilma loodust oluliselt kahjustamata. Konkreetselt on transpordiga seotud probleemid kirjeldatud peatükis 4.3, kus on välja toodud valglinnastumise, ühistranspordi ja alternatiivsete energiaallikate ebapiisava arendamise ja 4 https://www.mkm.ee/sites/default/files/enmak_2030.pdf, lk 13 5 https://www.envir.ee/sites/default/files/kliimamuutustega_kohanemise_arengukava_aastani_2030_0.pdf 6 https://www.agri.ee/et/pollumajanduse-ja-kalanduse-valdkonna-arengukava-aastani-2030 3 odava transiidikoridorina toimimise tulemusena tekkinud probleemid. Need on autode hulga suurenemine ja sellega seotud suurenenud maakasutus, õhusaaste suurenemine, keskkonnariskide suurenemine, keskkonnasõbralike energiaallikate ja kütuste vähene kasutus. Probleemide lahendamiseks seatud eesmärk on kirjeldatud peatükis 5.3 „Kliimamuutuste leevendamine ja õhu kvaliteet“: arendada välja efektiivne, keskkonnasõbralik ja mugav ühistranspordisüsteem, ohutu kergliiklus (muuta alternatiivid autole mugavamaks) ning sundpendelliiklust ja maanteevedusid vähendav asustus- ja tootmisstruktuur (vähendada transpordivajadust). Koostatava Teadus- ja arendustegevuse, innovatsiooni ning ettevõtluse arengukava 2021– 2035 eesmärk: Eesti teadus, arendustegevus, innovatsioon ja ettevõtlus suurendavad koostoimes Eesti ühiskonna heaolu ja majanduse tootlikkust, pakkudes konkurentsivõimelisi ja kestlikke lahendusi Eesti ja maailma arenguvajadustele. Suund teadmuspõhistele ja innovaatilistele lahendustele on võrdselt oluline ka transpordi valdkonnas. Eesti infoühiskonna (uuendatud) arengukava 2020 tegevused aitavad info- ja kommunikatsioonitehnoloogiate laiema kasutusega sundliikumist vähendada. See tähendab, et erinevalt enamikust teistest arengukavadest, mille puhul aitab transpordi arengukava nende eesmärke ellu viia, aitab infoühiskonna arengukava ellu viia transpordi arengukava eesmärke. Lihtsalt ja mugavalt ning igal pool kättesaadavad e-teenused vähendavad sundi liikuda. Parem IKT taristu ja laiem ning kompetentsem kasutajaskond võimaldab transpordisektoris arendada ja kasutusele võtta uusi nutikaid lahendusi. Alustatakse tehisintellekti rakenduste ehk nn „krattide“ kasutuselevõttu avalikus sektoris: töötatakse välja ja viiakse ellu vastav tegevuskava ning tehakse katseprojekte. Koostatava Metsanduse arengukava aastateks 2021-20307 kohaselt on transpordi valdkonnaga jätkuvalt seotud säästlik metsamaterjali vedu kui ka alternatiivsete (taastuvate) kütuste kasutuselevõtt metsavedudes. Koostatav Rahvastiku tervise arengukava 2020–2030 toob välja, et välisõhu saaste on üks olulisemaid keskkonnatervise riske, mille vähendamisega saavad riigid kahandada insuldist, südamehaigustest, kopsuvähist ning kroonilistest ja akuutsetest hingamisteede haigustest (sh astma) tulenevat haiguskoormust.8 Peamine välisõhusaaste koormus tekib transpordi-, energia- , tööstus-, jäätmekäitlus-, elamumajandus- ja põllumajandussektoris. Ka on toodud välja, et Eestis põhjustab ebavõrdsust tervises suurel määral tervishoiuteenuste kättesaadavus, mis on osalt seotud kindlustuskaitse puudumise või selle katkendlikkusega, aga ka transpordikorraldusega. Linnainimestele on teenused kättesaadavad väiksemate transpordiprobleemideta, samas maa- ja hajaasustatud piirkondades elavad inimesed on seatud ebasoodsamasse olukorda. Rahvastiku arengukava eesmärkide saavutamiseks on transpordi ja liikuvuse arengukava seisukohast vajalik, et inimesele oleks tagatud ligipääs tema jaoks vajalikele teenustele. Jätkuvalt on probleemiks ka elanikkonna vähene kehaline aktiivsus. Peamised tegevused sekkumiste puhul on suunatud ühelt poolt inimeste hoiakute, tõekspidamiste ja väärtushinnangute kujundamisele ning teiselt poolt tervist toetava keskkonna loomisele. Lisaks 7 https://www.envir.ee/et/eesmargid-tegevused/metsandus/metsanduse-arengukava-aastateks-2021-2030 88 https://www.who.int/phe/publications/air-pollution-global-assessment/en/ 4 on luubi all alkoholi, uimastite ja rahustite tarbimise, vaimse tervise häirete ja hoolimatu või agressiivse käitumise mõju liiklusohutusele, iseäranis sõidukijuhtide puhul. „Siseturvalisuse arengukavaga 2015-2020“ (edaspidi STAK). Peamised käsitletavad teemad STAKis on liiklusohutus ja –turvalisus, riigi ja kohalike teede sõidetavuse tagamine kui elutähtis teenus, lennujaamade ja sadamate turvalisus, objekti kaitse jmt. Loodava arengukava üks alasihte võiks olla riskiva ja ennast või teisi ohtu seadva käitumise vähenemine ja selleks vajalike meetmete rakendamine. Siinkohal võib näiteks üheks võimalikuks meetmeks olla üldharidussüsteemis õpetajate kaasamine turvalise liiklemise hoiakute ja käitumise kujundamisesse. Regionaalarengu strateegia aastani 2020 täpsustab ja täiendab üleriigilist planeeringu „Eesti 2030+“. Selle eesmärgiks on ühtlustada Eesti piirkondlikku arengut, mille puhul iga piirkond panustaks oma eripärale, tuginedes Eesti kui terviku konkurentsivõime kasvule. Inimestel oleksid kättesaadavad head töökohad, kvaliteetsed teenused, võimalused eneseteostuseks ning mitmekesiseid tegevusi võimaldav elukeskkond. Kõigi toimepiirkondade terviklik areng ühtlaselt üle Eesti on vajalik asustussüsteemi tasakaalustatud arenguks. Selle oluline eeldus on väiksemate keskuste võime toimida toimepiirkonna keskusena oma tagamaale ja keskus-tagamaa hea sidustatus läbi transpordiühenduste, ettevõtlusvõrgustike ja koostöö. Oluline on toimepiirkondade sisemine sidustamine töö ja teenuste paremaks kättesaadavuseks, võimaldamaks kogu toimepiirkonna elanikel saada paremini osa eri kohtade pakutavatest võimalustest ja hüvedest. Selleks edendatakse toimepiirkondade keskusi tagamaaga sidustavat ühistranspordikorraldust ning toetatakse investeeringuid toimepiirkonna sisese liikumisvajaduse seisukohast oluliste transpordisõlmede, kergliiklusteede ja juurdepääsuteede rajamiseks. Arengukavas on toodud järgmised eesmärgid, mis on seotud transpordi planeerimisega: a) igapäevaseks tööl käimiseks ühistransporti või jalgratast kasutavate ja jalgsi liikuvate inimeste osatähtsuse suurendamine pealinna- jt suuremates linnapiirkondades; b) toimepiirkondade keskuste ühistranspordi piiriüleste välisühenduste sageduse suurendamine väljaspool Tallinna. Eesti säästva arengu riiklik strateegia „Säästev Eesti 21“. Riigikogu 14.septembri 2005. a otsusega heaks kiidetud strateegia. Eesti riigi ja ühiskonna arendamise strateegia 2030. aastani, sihiga ühendada globaalsest konkurentsist tulenevad edukuse nõuded säästva arengu põhimõtete ja Eesti traditsiooniliste väärtuste säilitamisega. Strateegia põhiülesanne on vastata küsimusele – mida tuleks teha tagamaks Eesti ühiskonna ja riigi edukas toimimine ka pikemas perspektiivis? Mistõttu on strateegia aluseks valdkondlike arengukavade koostamisel. Konkurentsivõime kava „Eesti 2020“9. Kavas nimetatakse konkurentsivõimelise ettevõtluskeskkonna peatüki all Valitsuse poliitika ühe suunana transpordi taristu ja institutsioonide viimist rahvusvahelisele tasemele (poliitika suund nr 11). Märgitakse, et Eesti asukoha ja asustuse paiknemise tõttu on konkurentsivõimelisel tasemel ühendusvõimalused nii piiriüleselt kui ka siseriiklikult elu- ja ettevõtluskeskkonna jaoks väga olulised. Vajalik on ühistranspordi kasutajamugavuse tagamiseks ühtlustada sõiduplaane, aga ka rajada vastav infrastruktuur, mis võimaldab nii reisijate kui ka kaupade liikumist ühelt transpordiliigilt 9 https://www.riigikantselei.ee/et/konkurentsivoime-kava-eesti-2020 5 teisele, ning pikemas perspektiivis integreeritult kavandada taristut transpordiliikide alternatiivide vahel valimiseks. Konkreetsete tegevussuundade kohta on öeldud, et „…oluline on pöörata enim tähelepanu rahvusvahelistele ühendusteedele, iseäranis lennuühendustele ja piiriületavatele raudteedele ja maanteedele. Tasakaalustatud regionaalse arengu huvides tuleb lisaks rahvusvahelistele maanteedele jätkata riigi kõrvalmaanteede tolmuvaba katte alla viimist, teha ettevalmistusi ühistranspordisüsteemide ühendamiseks…“. Haridus- ja Teadusministeeriumi elukestva õppe strateegia 2020. Transpordikorraldus on oluline eeltingimus õppijate ligipääsu tagamisel nii formaalhariduse kui ka huvihariduse ja täienduskoolitusele. Euroopa Liidu Läänemere piirkonna strateegiat10 puudutav Komisjoni teatis toob peamise transpordiprobleemina välja halva juurdepääsetavuse paljudele piirkonna osadele: Põhja- Soomet, Rootsit ja Balti riike iseloomustab nii sise- kui ka välistranspordis kõige madalam juurdepääsetavuse näitaja kogu Euroopas. Põhjuseks on piirkonna lai ulatus, mistõttu reisiteekonnad on pikad ja võtavad palju aega, ning rasked ilmastiku- ja geograafilised olud. Hõre infrastruktuur või osutatavate teenuste vähesus toob kaasa kõrged hinnad. Lahenduseks saab olla säästlike transpordivahendite kasutamine. Tegevuskava hõlmab järgmisi prioriteetseid valdkondi: 1) parandada energiaturgude juurdepääsetavust, tõhusust ja julgeolekut; 2) parandada nii sise- kui ka välistranspordivõrku; 3) säilitada ja suurendada Läänemere piirkonna atraktiivsust, eelkõige hariduse, turismi ja tervishoiu valdkonna meetmete kaudu. Avalike teenuste korraldamise rohelise raamatu tegevused aitavad sarnaselt infoühiskonna arengukavaga vähendada sundliikumisi, vähendades sundi ametiasutusi külastada või pakkudes avalikku teenust kättesaadavamas asukohas. Eesti disainivaldkonna riikliku tegevusplaani 2012-2013 näol on tegemist disainikasutuse arengule suunatud riikliku toetuspoliitika esimese faasiga, mille eesmärgiks on seada sisse elluviijate vaheline koostöö ning alustada tegevuste elluviimisega. Disaini eesmärgiks on luua: esteetilisem, omapärasem, huvitavam, kasutajasõbralikum, lihtsam, arusaadavam, funktsionaalsem, ergonoomilisem, ökonoomsem, turvalisem, uuenduslikum - toode, teenus või keskkond. Tegevusplaanis toodud tegevuste elluviimise kaasnev mõju väljendub muuhulgas paremates avalikes teenustes ja ruumilise keskkonna arengus, samuti Eesti riigi maine paranemises. 10 http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0248:FIN:ET:HTML 6  Meretranspordipoliitika Dokumendi Meretranspordipoliitika kontseptsioon nimetus ja kestus “Transpordi ja liikuvuse arengukava 2021-2035" lisa Tulemusvaldkond Transport Tagada jätkusuutlik, ohutu, turvaline, juurdepääsetav, kaasav, kiire ja tehnoloogiliselt uuenduslik transpordisektor ja taristu, mis suurendab Eesti Tulemusvaldkonna kodanike heaolu ning edendab nende liikuvusvõimalusi, toetab üldeesmärk konkurentsivõimelist ja tõhusat logistikat ning aitab kaasa Eesti majanduse konkurentsivõime suurendamisele.  suurendada rahvusvahelise kauba- ja reisijateveo mahtu  suurendada Eesti lipu all sõitvate laevade arvu ja selle tulemusel kaldasektori töökohtade arvu  suurendada merendusega seotud ettevõtete loodavat innovatsiooni ja lisandväärtust Programmi eesmärk  soodustada täiendavate võimaluste loomist kaldaäärse (väike)ettevõtlus- ja elukeskkonna atraktiivsuse tõstmiseks, et suurendada rannikuäärsetes regioonides elavate ja töötavate inimeste hulka, mis omakorda aitab kaasa merekultuuripärandi säilimisele  muuta merendussektor keskkonnasõbralikumaks ning suurendada ohutust veekogudel ja sadamates Majandus- ja Kommunikatsiooniministeerium. Kaasvastutajad: Keskkonnaministeerium, Haridus- ja Teadusministeerium, Justiitsministeerium, Vastutaja Rahandusministeerium, Siseministeerium, Maaeluministeerium, (kaasvastutajad) Kultuuriministeerium ning Sotsiaalministeerium ja ministeeriumide valitsemisala asutused. Eesti mereala on oluline osa Eesti Vabariigi territooriumist, kus viiakse ellu majanduslikke, kultuurilisi, keskkonnaalaseid ja julgeoleku huvisid. Samas teadvustame, et merendusega seotud küsimused on sageli laia rahvusvahelise mõjuga ning merenduse areng saab toimuda ainult konstruktiivses rahvusvahelises koostöös. Tulenevalt oma geograafilisest asendist soovib Eesti olla strateegiline partner ülemaailmses tarneahelas ja tagada Eestis pakutava transporditeenuse konkurentsivõimelise kvaliteedi. Eesti merenduse arengu suundadeks on: Sisu lühikokkuvõte  ettevõtluskeskkond on ettevõtjasõbralik ja rahvusvaheliselt konkurentsivõimeline  merendus on ohutu, turvaline ja merekeskkonna seisund on paranenud  avaliku sektori tegevused toetavad merenduse arengut  Eesti mereharidus ning teadus- ja arendustegevus on kaasaegsel tasemel  rannaäärne elu- ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut ning merekultuuri edasi kandmist Meretranspordipoliitika tegevused kaetakse nelja-aastase kestusega elluviimiskavaga, mis on üheks osaks transpordi programmis. Elluviimiskava on kooskõlas riigi eelarvestrateegiaga ning on rulluv, mis tähendab, et igal aastal lisandub elluviimiskava juurde üks planeeritav aasta. Elluviimiskava kooskõlastatakse ministeeriumitega, kes panustavad meretranspordipoliitikasse rahaliselt või toetavate tegevustega ning selle kinnitab Vabariigi Valitsus koos Juhtimiskorraldus transpordi ja liikuvuse arengukava transpordi programmiga. Meretranspordipoliitika elluviimist korraldab Majandus- ja Kommunikatsiooniministeerium koostöös teiste ministeeriumidega. Meretranspordipoliitika elluviimises osalevad ministeeriumid ja ametid koostavad igal aastal oma vastutusalasse jäävate meetmete ja tegevuste rakendamise kohta tulemusaruande ja esitavad selle hiljemalt iga järgmise aasta 1. veebruariks Majandus- ja Kommunikatsiooniministeeriumile. Kokkuvõtete 2 alusel koostab Majandus- ja Kommunikatsiooniministeerium elluviimiskava täitmise aruande. Aruannet tutvustatakse enne kinnitamist Vabariigi Valitsuse majandusarengu komisjonis. Kinnitatud aruanne avaldatakse Majandus- ja Kommunikatsiooniministeeriumi koduleheküljel. 3 Sisukord Sissejuhatus ............................................................................................................................................. 5 1. Eesti merenduse hetkeolukord ........................................................................................................... 8 1.1 Hetkeolukorra analüüs - Eesti merendus rahvusvahelises konkurentsis ...................................... 8 1.1.1 Eesti laevaregistrite konkurentsivõime ................................................................................ 10 1.1.2 Eesti sadamate ja logistikaettevõtete konkurentsivõime .................................................... 10 1.1.3 Eesti laevaehitussektori konkurentsivõime .......................................................................... 11 1.2 Merendussektori SWOT analüüs ................................................................................................. 12 2. Merenduse arenguprogramm ........................................................................................................... 14 2.1 Merenduse visioon ...................................................................................................................... 14 2.2 Prioriteetsed suunised ja eesmärgid merenduse edendamiseks ................................................ 17 2.2.1 PRIORITEET 1 – Merenduse ettevõtluskeskkond on ettevõtjasõbralik ja rahvusvaheliselt konkurentsivõimeline .................................................................................................................... 17 2.2.2 PRIORITEET 2 - Merendus on turvaline ja ohutu. Merendus on keskkonnasäästlik ja kliimaneutraalne............................................................................................................................ 27 2.2.3 PRIORITEET 3 – Avaliku sektori tegevused toetavad merenduse arengut ........................... 35 2.2.4 PRIORITEET 4 – Eesti merendusharidus ning teadus- ja arendustegevus on kaasaegsel tasemel .......................................................................................................................................... 38 2.2.5 PRIORITEET 5 – Rannaäärne elu-ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut, merekultuuripärandit kantakse edasi. ..................... 41 Lisa 1 – Meretranspordipoliitika kaasamisürituste kokkuvõtted .......................................................... 44 4 Sissejuhatus Meretranspordipoliitika kuulub riigi eelarvestrateegia tulemusvaldkonda „Transport“ ja koostatakse „Transpordi ja liikuvuse arengukava 2021–2035“ peatüki 4 „Hästi ühendatud Eesti. Konkurentsivõimeline transport ja taristu“ alapeatüki 4.4 „Mereriik Eesti, innovatiivne ja keskkonnahoidlik meretransport“ alusel. Meretranspordipoliitika koostatakse aastateks 2021– 2035 ja on jätkuks arengukavale „Eesti merenduspoliitika 2012-2020“. Meretranspordipoliitika võtab arvesse eelmisel perioodil (Merenduspoliitika rakendusplaan 2017-2020) seatud eesmärkide täitmist ja omandatud praktilisi kogemusi, tuginedes edukamate riikide parimale praktikale. Meretranspordipoliitika koostamisel on lähtutud Vabariigi Valitsuse määrusest nr 19.12.2019. a määrusest nr 117 „Valdkonna arengukava ja programmi koostamise, elluviimise, aruandluse, hindamise ja muutmise kord“. Seos teiste arengukavadega Meretranspordipoliitika on tihedalt seotud mitmete teiste strateegilise planeerimise dokumentidega. Kõige olulisemad seosed on transpordi ja liikuvuse arengukavaga 2021-2035, mille lahutamatu osa käesolev dokument on, strateegiaga „Eesti 2035“, Euroopa Liidu integreeritud merenduspoliitikaga, Euroopa Liidu Läänemere strateegiaga, HELCOMi Läänemere tegevuskavaga, põllumajanduse ja kalanduse arengukavaga aastani 2030, siseturvalisuse arengukavaga 2020-2030, heaolu arengukavaga 2016-2023, riigikaitse arengukavaga 2017-2026. Samuti on meretranspordipoliitikal seos mereala planeeringutega (koostatav Eesti mereplaneering, kehtivad Hiiu ja Pärnu mereplaneeringud). Sealjuures on võimaluse korral välditud teemade käsitluse dubleerimist. Arengudokumendis käsitletakse teemasid, mis on otseselt seotud laevanduse ja meretranspordi konkurentsivõime, selle tõstmise ja keskkonnahoiuga ning rannaäärse elu- ja külastuskeskkonna arendamisega, eesmärgiga säilitada merekultuuripärandit. Arengudokumendis ei käsitleta põhjalikult kalanduse valdkonda, sest kalanduse arengu planeerimisega tegelevad Maaeluministeerium ja Keskkonnaministeerium, lähtudes arengukavast „Põllumajanduse ja kalanduse valdkonna arengukava aastani 2030“. Säästva arengu eesmärgid Rahvusvahelise Mereorganisatsiooni (IMO) liikmesriigina rakendab Eesti IMO poliitikaid ja põhimõtteid meresõiduohutuse ja merekeskkonnakaitse tagamisel. IMO peamine eesmärk on arendada ja hallata ühtset rahvusvahelist laevanduse regulatsiooni. Viimase eesmärk on tagada mereohutus ja -turvalisus, säästa keskkonda, lahendada juriidilised küsimused ning fikseerida tehniline koostöö. IMO strateegilised eesmärgid on seotud viieteistkümne ÜRO säästva arengu eesmärgiga (United Nations Sustainable Development Goals). Nende eesmärkide elluviimise toetamisel teeb organisatsioon tihedat koostööd liikmesriikide ja ÜRO institutsioonidega. Rahvusvahelise Tööorganisatsioon (ILO) on ÜRO organisatsioon, mille liige Eesti on samuti aastast 1992. Muudest rahvusvahelistest organisatsioonidest erinevalt põhineb kogu ILO tegevus kolmepoolsusel, s.o kogu organisatsiooni tegevus lähtub kolme kooslusrühma – valitsused, tööandjad ja ametiühingud – väljendatavatest huvidest ja prioriteetidest. ILO tähtsaimaks töövormiks on rahvusvahelise tööregulatsiooni kehtestamine, mis toimub 5 konventsioonide ja soovituste vastuvõtmise kujul. ILO ei võta vastu üldsiduvaid rahvusvahelisi tööseadusi, vaid fikseerib minimaalse õigusliku tasandi, millest konventsiooni ratifitseerinud riik peab ilmtingimata kinni pidama või millest (soovituse puhul) soovitatakse juhinduda. Merenduse valdkonnas on väga oluline ILO meretöö konventsioon. Euroopa Liit on kutsunud liikmesriike üles koostama integreeritud merenduspoliitika arengudokumente, kuna merendusteemad on killustunud ja vajavad ühtset lähenemist ja eesmärgi saavutamiseni jõutakse vaid kõiki valdkondi ühtse tervikuna käsitledes. Integreeritud merenduspoliitika on kõigi merega seotud Euroopa Liidu poliitikasuundade terviklik käsitlus. Tuginedes arusaamale, et poliitikasuundade koordineerimise abil võib liit saada meredest ja ookeanidest rohkem kasu, ent mõjutada keskkonda vähem, hõlmab integreeritud merenduspoliitika selliseid erinevaid valdkondi nagu kalandus ja vesiviljelus, laevandus ja meresadamad, merekeskkond, merealased teadusuuringud, avamere energia, laevaehitus ja teised merega seotud tööstusharud, mereseire, mere- ja rannikuturism, tööhõive, rannikualade arendamine ja välissuhted merendusküsimustes. Seos Eesti 2035 sihtidega Meretranspordipoliitika panustab „Eesti 2035“ sihtidesse „Eestis elavad arukad, tegusad ja tervist hoidvad inimesed“, „Eesti majandus on tugev, uuendusmeelne ja vastutustundlik“, „Eesti on parim koht elamiseks“, „Eesti ühiskond on hooliv, koostöömeelne ja avatud“ ja „Eesti on uuendusmeelne, usaldusväärne ja inimesekeskne riik“. Riikliku arengukava „Transpordi ja liikuvuse arengukava aastateks 2021-2035“ meretranspordipoliitika laiendatud visioon koondab strateegilised eesmärgid ja nende saavutamiseks vajalikud tegevused merendussektori arengu soodustamiseks. Poliitikadokumenti täiendab neljaks aastaks koostatud programm, mis on osa transpordi programmist ja kirjeldab detailsemalt elluviimiseks planeeritavaid tegevusi, väljundeid, rakendajaid ja finantsplaani. Meretranspordipoliitika laiendatud visioon on koostatud ministeeriumide vahelises koostöös, kaasates kõiki arengudokumendist huvitatuid. Oma sisendi on andnud nii ettevõtted, erialaliidud, haridus- ja teadusasutused kui ka mittetulundusühingud. Meretranspordipoliitika on valdkondade ülene ning selle koostamisel on arvestatud ja see on seotud mitmete kehtivate ning väljatöötavate arengukavade ja teiste strateegiliste planeerimise dokumentide ning arenguprogrammidega. Samas on eesmärgiks vältida dubleerimist ning seetõttu annab meretranspordipoliitika mitmete teemade osas üldise suunise edaspidisteks tegevusteks ning täpsemad meetmed ja tegevused kajastatakse valdkondlikes dokumentides. Samuti on meretranspordipoliitika põhifookus suunatud meremajandusega seotud tegevustele ja nende mõjudele. Tulenevalt merenduse rahvusvahelist mõõtmest on meretranspordipoliitika tugevalt mõjutatud Euroopa Liidu vastavasisulistest dokumentidest ja käsitleb teemasid, mis Euroopa Liidu tasandil on merenduses prioriteetseteks seatud. Eesti eesmärgid ühtivad Euroopa Liidu seatud eesmärkidega, eelkõige Euroopa Liidu integreeritud merenduspoliitikas tooduga. Merenduse arengudokumendi koostamise eesmärk on välja töötada merenduse sektoreid omavahelises koostoimes käsitlevaid suunised merenduse edendamiseks, et realiseerida maksimaalselt ja keskkonnahoidlikult Eesti potentsiaal mereressursi kasutamisel ning 6 säilitamisel. Ühest küljest sõltub merendusest suur osa Eesti majandusest, kuna Statistikaameti andmetel vähemalt 60% Eesti ekspordist ja impordist toimub meritsi. Teisest küljest võimaldab avatus merele koos asukohaga suurte kaubavoogude teel Eestil teenida olulist sissetulekut rahvusvahelisest kaubaveost, turismist ning kalandusest. See on aga võimalik ainult siis, kui otseselt merendusega seotud majandustegevust toetavad efektiivsed avaliku sektori teenused ja õiguslik regulatsioon, hea ettevalmistusega tööjõud, oskuste ja teadmiste üldine kõrge tase ning turuosaliste vaheline koostöö. Lisaks majandustegevusele mõjutavad meri ning siseveed inimeste elukeskkonda, teistpidi mõjutab inimese tegevus omakorda otseselt merekeskkonda. Seega tuleb koos majandustegevusega käsitleda elukeskkonna, regionaalarengu ning keskkonnahoiu teemasid. Kuigi juba praegu toimivad paljud merenduse valdkonnad efektiivselt, on merenduse terviku potentsiaal siiski maksimaalselt kasutamata. Potentsiaali maksimeerimiseks lähtutakse käesolevas dokumendis seisukohast, et kõik merega seotud küsimused on omavahel seotud, toetavad üksteist ja neid peab käsitlema tervikuna. Selle tulemusena jõutakse olukorrani, kus suurenenud on merendusega seotud ettevõtluses loodav lisandväärtus, on loodud täiendavaid võimalusi väikeettevõtluseks, kaldaäärne elukeskkond on atraktiivne ja soodustab inimeste paikseks jäämist rannikuäärsetesse regioonidesse, vähenenud on samas keskkonna koormus ning õnnetused merel, veekogudel ja sadamates ning Läänemere keskkonnaseisund ei ole halvenenud. Meretranspordipoliitika koostamisel lähtuti põhimõttest, et Eesti mereala on Eesti Vabariigi territooriumi lahutamatu osa, kus Eesti viib ellu oma majanduslikke, kultuurilisi, keskkonna- alaseid ja julgeoleku huvisid. Samas teadvustame, et merendusega seotud küsimused on sageli laia rahvusvahelise mõjuga ning merenduse areng saab toimida ainult konstruktiivses rahvusvahelises koostöös. Tulenevalt oma geograafilisest asendist soovib Eesti olla strateegiline partner ülemaailmses tarneahelas ja tagada Eestis pakutava transporditeenuse kõrgeima kvaliteedi ning selle kõige juures kasutada nutikaid tehnoloogilisi arendusi, mis muudab teenuse pakkumise tõhusamaks, aidates sellega kaasa Läänemere hea keskkonnaseisundi saavutamisele. Välja töötatud meetmed ja tegevused on kooskõlas Euroopa Liidu vastavasisuliste poliitikate ja juhistega. Kaasamine Meretranspordipoliitika koostamise kaasamisprotsessiga alustati 2019. aasta suvel, mil paluti huvigruppidel esile tuua sektori probleemid ja esitada sisend visioonile, milline peaks Eesti merendussektor aastal 2035 olema. Huvigruppidelt laekus kokku 174 ettepanekut- tähelepanekut. Tagasiside põhjal korraldati huvigruppidega mõttetalguid. Kokku toimus perioodil detsember-veebruar 2020 viis kaasamisüritust. Kohtumiste eesmärk oli koos huvigruppidega valmistada ette põhjalik meretranspordipoliitika arengustrateegia dokument, mis aitab kaasa merendussektori konkurentsivõime ja tööhõive kasvule ning võtab arvesse uusi keskkonnastandardeid. Lisaks kaasati erinevaid osapooli ka väikestes gruppides. Ettevalmistustöö eesmärk oli kaasata võimalikult lai ring sektori esindajaid. Dokumendi koostamisel on arvestatud ka teiste riikide meretranspordipoliitika strateegiliste dokumentide sihtidega. Eesti lähenemine on sarnane Rootsi sihtidele, milles püütakse arengusuundades leida sünergia sektori konkurentsivõime ja keskkonnaalaste sihtide vahel. 7 1. Eesti merenduse hetkeolukord 1.1 Hetkeolukorra analüüs - Eesti merendus rahvusvahelises konkurentsis Äriklaster on mingis piirkonnas paiknev ja laiemalt või kitsamalt määratletud tegevusvaldkonnas tegutsev ettevõtete ja institutsioonide võrgustik. Klastrisse kuuluvad sarnasete majandushuvidega omavahel seotud üksused, mis aitavad suurendada rahvusvahelist konkurentsivõimet.1 Ka merendus on valdkond, milles tegutsevad ettevõtted võivad aidata kaasa vastastikusele produktiivsuse suurenemisele. Oluline on aga silmas pidada, et mere olemasolu ei tähenda veel ilmtingimata merendusklastri olemasolu. Tugeva merendusklastri eksisteerimiseks peavad reaalselt eksisteerima ka selle erinevate osade vahelised seosed. Eesti rahvusvaheline laevandus ei ole hetkel üheski klastris esindatud. Euroopa Komisjon on määratlenud Euroopa Liidu merendusklastri osad oma töödokumendis „Maritime Cluster“. Eesti kontekstis lähtume me suures osas Euroopa Komisjoni käsitlusest, arvestades meie merendussektori rõhuasetusesi. Erinevalt Euroopa Komisjonist käsitleme me haridust koos teadustöö ja -uuringutega, sest Eestis on need tihedalt seotud ning haridusel on kriitiline tähtsus merenduse konkurentsivõime tõstmisel. Termin „merendus“ on mõiste, mida võib sisustada mitmeti – seda võib käsitleda ainult kui kaubanduslikku meresõitu või hõlmata sinna ka teised valdkonnad, nagu kalandus, avameretööstus jms. Viimastel aastakümnetel on merendust hakatud uurima süsteemsemalt. Klastripõhiselt vaadeldakse merendust laiemalt, püüdes haarata pea kõiki vetel tehtavat, mitmetel juhtudel käsitlevad riigid ka siseveelaevandust merenduse osana. Euroopas loob merenduses 5,4 miljonit inimest lisandväärtust 485 miljardi euro ulatuses (Blonk, 2015). Euroopa merendussektori konkurentsivõime ja jätkusuutlikkuse tagamiseks on vajadus rakendada initsiatiivi „Sinine kasv“ - aruka, jätkusuutliku ja kaasava majandus- ja tööhõivekasv ookeanidel, meredel ja rannikul. Merenduse tähtsusest Euroopa jaoks näitab ka see, et 75% Euroopa rahvusvahelisest kaubandusest (Study on the Analysis and Evolution of International and EU Shipping, 2015) ja 40% Euroopa Liidu sisekaubandusest toimub meritsi (European Commission, 2016). Nimetatud näitajad on põhjuseks, miks rahvusvahelises kaubanduses osalevate sadamate areng on Euroopa Liidu jaoks oluline. Euroopa sadamates töötab 1,5 miljonit inimest. Võrdluseks Eesti sadamate alamklastris töötab hinnanguliselt 2500 inimest (Merendussektori majandusmõju uuring, 2016). Selleks, et Euroopas saaks välja arendatud üleeuroopaline transpordivõrk (TEN-T võrgustik) on määratletud 329 võtmesadamat, millede eelisarendamine peaks tagama toimiva sadamavõrgustiku. Eestist kuuluvad TEN-T üldisesse võrgustikku Muuga sadam, Paldiski lõunasadam, Paljassaare sadam, Vanasadam, Kunda sadam, Pärnu sadam, Heltermaa-Rohuküla ja Virtsu-Kuivastu sadamad. Toimiv sadamavõrgustik tähendab ühtlasi seda, et sadamate tegevusse on integreeritud ka teenindus- ja vahendustegevus. Kogumahutavuse (GT) põhise arvestuse kohaselt kontrollivad Euroopa laevaomanikud 41% maailma laevastikust (United Nations UNCTAD e-handbook of statistics, 2019). Eesti vastav näitaja sama allika järgi on 0,02%. Laevandus loob Euroopas 2,3 miljonit töökohta pardal ja 1 Porter, M. E. 1998, Clusters and the new economics of competition, Harvard Business Review, 1998. 8 kaldal (European Community Shipowners’ Associations, 2016), mis teeb sellest olulise sektori Euroopa jaoks ning seepärast on oluline, et Euroopa laevandus oleks maailma mastaabis jätkusuutlik ja konkurentsivõimeline. Kalandus ja vesiviljelus on Euroopas samuti tähtsal kohal, kuna osutab teenust maailma suurimale mereandide turule, Euroopale. Selleks, et kalandus ja vesiviljelus kasutaks vastavat ressurssi jätkusuutlikult on Euroopa Liidus vastuvõetud ühine kalanduspoliitika. Vesiviljelus moodustab Euroopa kalatoodangust 20%. Laevaehituse alla loetakse Euroopa Liidus suuremate (reeglina merelaevade) laevade ehitust ja remonti. Euroopas on 150 suurt laevatehast, milles töötab 120 tuhat inimest (Euroopa Komisjon, 2016). 2019. andmete sisuga oli Eestis üks töölaevade ehitaja - Baltic Workboats AS (Eesti laevaehitusettevõtted 2018, TalTech Väikelaevaehituse kompetentsikeskuse uuring). Merendusklastrite ülevaatele tuginedes (Portsmuth, Hunt, Terk, Nõmmela, & Hartikainen, 2011) (Nõmmela, 2012) saab järeldada, et võrreldes teiste merendusriikidega, on Eesti merendussektorit terviklikult uuritud suhteliselt vähe, keskendudes peamiselt sektori laiaulatuslikule käsitlusele, kuid ilma põhjalikumalt analüüsimata alamklastrite omavahelisi seoseid ja sõltuvust. Majandus- ja Kommunikatsiooniministeeriumi tellitud merendussektori majandusmõju uuringu I etapp viidi läbi aastal 2016. Tuginedes senistele uuringutele ning teiste riikide näidetele saab Eesti merendusklastri jagada järgmisteks alamklastriteks: - laevandus; - sadamad; - kalapüük ja vesiviljelus; - laevaehitus; - vesiehitus ja süvendamine sealhulgas sadamate tehno- ja infosüsteemid; - energeetika; - huvilaevandus ja rekreatsioon; - merendusalane teenindus- ja vahendustegevus; - avalik sektor, teadus ja haridus. Hetkeolukorra kirjelduses on lähtutud olemasolevast alamklastrite statistikajaotusest. Tulevikus on vajalik täpsustada statistika kogumist ja piiritleda merendussektor konkreetsemalt. Merendus on oma olemuselt globaalne äri ning Eesti ettevõtted on seetõttu tihedas konkurentsis teiste riikide ettevõtetega. Tuleb öelda, et turul ei konkureeri mitte ainult ettevõtted, vaid seda teevad riigid, kuna kaubaveo koridoride konkurentsivõime on laiem kui ühe ettevõtte või ettevõtete grupi tegevus. Siinkohal muutubki oluliseks ettevõtete omavaheline koostöö ning koostöö avaliku sektoriga konkurentsivõimelise ettevõtluskeskkonna ja kaubaveo koridori loomisel. Eesti laevanduse konkurentsivõime tõstmiseks tuleb panustada Eesti laevaregistrite konkurentsivõime kasvule. Samuti tuleb analüüsida võimalusi laevandussektori investeeringute soodustamiseks. 9 1.1.1 Eesti laevaregistrite konkurentsivõime Globaalne konkurents avaldub laevanduses mitmeti, muu hulgas ka ettevõtete õiguse kaudu registreerida oma laevu teiste riikide registrites (nn lipuriigi valimine). 1992. aastast ei ole Eesti lipu kandmine kaubalaevadele olnud piisavalt atraktiivne. Seejuures on oluline tähtsustada, et laevad ja laevandus ei ole iseenesest kadunud – Eesti reederid opereerivad jätkuvalt umbes 60 kaubalaevaga, kuid need sõidavad teiste riikide lippude all, sest Eesti lipp ja laevaregistrid ei ole globaalses mastaabis olnud konkurentsivõimelised. Riigil on kasulik omada oma lipu all võimalikult palju laevu, kuna seeläbi laekuvad riigile riigilõivud ja registritasud, kuid sellest olulisem on positiivne kaudne mõju, mida riigi laevandussektorile avaldavad riigi lipu all sõitvad laevad. Eesti eesmärk on, et lisaks laevade Eesti registritesse toomisele, tuuakse siia ka laevade opereerimine ehk laevu tehnilistes ja muudes aspektides haldavate reederite füüsilised tegevuskohad. Sellega luuakse siia töökohti, laekuks maksutulu ning kokkuvõttes suureneks ühiskonna tulu. Kuna laevandussektor ning sadama- ja logistikasektor on omavahel lahutamatult seotud, soodustab laevandussektor ka teiste majandusvaldkondade arengut. Laevade haldusega tegeleva ettevõtluse juurde tekib alati ka teisi, neile teenuseid osutavaid ettevõtteid: kindlustusseltsid, laevade varustamist pakkuvad ettevõtted, arbitraaži- ja õigusteenuseid pakkuvad ettevõtted, laevanduse finantseerimisega tegelevad fondid, pangad. 1. juulil 2020. a jõustusid seadusmuudatused, millega loodi soodsamad tingimused laevade Eesti laevapereta prahitud laevade registrisse registreerimiseks ja Eesti lipu all sõitva laevastiku suurendamiseks, kasutusele võeti tonnaažimaksu süsteem ja teatud laevadel töötavatele meremeestele võimaldatakse maksusoodustuse tegemist. Eesti laevanduse konkurentsivõime tõstmise meetmete paketti oodatavaks tulemuseks on Eesti laevastiku arvu suurenemine, mis aitab kaasa Eesti majanduse kasvule ja kaldasektori tekkele. Laevandussektor aitab laiendada Eesti ekspordi sihtriikide ringi, mis praegu koosneb suuresti vaid meie lähiriikidest. Eesti meremeestel tekib Eesti lipu all sõitva laevastiku suurenemisel täiendav võimalus asuda tööle Eesti lipu all sõitvatel laevadel, mis omakorda võimaldab neil ligi pääseda Eesti sotsiaalkindlustussüsteemile. Kehtib nimelt üldreegel, et sotsiaalmaksud tasutakse lipuriiki, kes omakorda tagab nende kaudu meremehele sotsiaalkindlustushüvitised. Veeteede Ameti hinnangul lisandub laevanduspaketi mõjul aastaks 2035 laevakinnistusraamatusse märkimisväärne arv laevu. Merenduspoliitika arengukavas 2012- 2020 on toodud vastavaks arvuliseks sihttasemeks aastaks 2030 vähemalt 50 laeva, sama siht on seatud ka käesolevas dokumendis. Kaubalaevade, reisilaevade ning merendussektori ettevõtete arv ei peegelda täna merendusspetsialistide konkurentsivõimet. Hinnanguliselt 50% meremeestest töötavad täna väljaspool Eestit. Veeteede Ameti andmetele tuginedes on kehtivate meretöödokumentidega laevapereliikmete arv vähenenud viimase viie aastaga 9600 inimeselt 8205 inimeseni. Mis omakorda tõstatab probleemi, kas merendussektoris on aastate pärast nõudlusele vastav arv kvalifitseeritud tööjõudu. 1.1.2 Eesti sadamate ja logistikaettevõtete konkurentsivõime 10 Eesti sadamate ja logistikaettevõtete konkurentsivõime on pigem hea. Eesti asub olulisel rahvusvahelisel kaubateel ida ja lääne vahel. Siinsetel sadamatel on head looduslikud tingimused, Eesti ettevõtete tooted ja pakutavad teenused on kõrge kvaliteedi ja konkurentsivõimelise hinnaga ning Eesti ärikultuur on usaldusväärne. Seetõttu võib kaubaomanik kauba Eesti kaudu vedamist kaaluda isegi juhul, kui kauba teekond ei ole kõige lühem või odavam. Selleks, et oluliselt suurendada Eestit läbiva kauba mahtu ja loodavat lisandväärtust, on vajalik kogu sektorit (merendus- kui ka logistikasektori) hõlmav eesmärgistatud koostöö. Transpordikoridoride (kuhu kuuluvad ka sadamad) konkurentsivõime kasvupotentsiaali ärakasutamiseks on vaja teha pikaajalist koostööd kogu transpordiahela ulatuses. See puudutab nii transiitvoogusid kui ka eksport-importvoogusid. Sadamatel on olemas ressurss, et tegutseda edukalt, kuid paraku on hetke majanduslikud ja poliitilised arengud takistuseks olemasoleva (tehnilise, oskusteave ja loodusliku) potentsiaali maksimaalseks ärakasutamiseks. Eesti sadamates käideldi 2019. aastal 37,6 miljonit tonni kaupa ehk 1,8 miljonit tonni enam kui aasta varem. Laevade lastimine moodustas sadamate kaubamahust 25,3 miljonit tonni ja lossimine 12,3 miljonit tonni. Transiitkauba vedu sadamate kaudu kasvas võrreldes 2018. aastaga 6% ja ulatus 20,2 miljoni tonnini. Transiitkaupa lastiti 14,6 miljonit tonni ja lossiti 5,6 miljonit tonni. Sadamate kaudu eksporditi 10,7 miljonit tonni ja imporditi 6,6 miljonit tonni kaupa. Eesti sadamatel on oluline roll ka riigi regionaalses majanduses. Näiteks Kunda, Sillamäe, Bekkeri, Pärnu, Paldiski sadamad, Virtsu, Roomassaare ja Heltermaa on suunatud kohaliku regionaalse ekspordi teenindamisele. Merekonteinerite vedu oli sarnane eelneva aastaga: veeti 242 060 TEU-d. Konteinereid veeti Eestist välja üle 120 855 TEU ja võeti vastu 121 205 TEU-d. Elektroonilise mereinfosüsteemi andmete kohaselt saabus 2019. aastal Eesti sadamatesse välisriikide sadamatest 11 434 laeva. Kõige rohkem oli segalastilaevu: 9297 laeva (sh reisi- veeremilaevad). Sadamatesse saabus ka 991 vedellasti-, 263 konteineri-, 175 puistlasti-, 116 eri- ja 334 kruiisilaeva. Eesti sadamaid väisas 2019. aastal üle 10,7 miljoni inimese rahvusvahelistel liinidel. Soomet ja Eestit ühendavatel liinidel teenindati üle 9 miljoni sõitja, mis oli veidi rohkem kui eelneval aastal. Eesti ja Rootsi vahel oli aga sõitjaid võrreldes 2018. aastaga 10% vähem, kokku 1,1 miljonit. Rahvusvahelistel laevaliinidel teenindati sadamates üle 2,1 miljoni sõiduki, neist 71% olid sõiduautod ning 26% veoautod ja haagised. Kruiisihooajal saabus Eestisse ligi 676 400 kruiisireisijat ehk 4% rohkem kui aasta varem. 1.1.3 Eesti laevaehitussektori konkurentsivõime Laevaehitussektor on erinevalt laevanduse ja sadamate alamklastritest positiivses kasvutrendis, millele aitab kaasa toimiva väikelaevaehituse klastri tegutsemine. Samuti on väikelaevaehitus hea näide ärisektori ja haridus-teadussektori koostööst väikelaevaehituse kompetentsikeskuse näol. Nii väikelaeva- kui ka muu laevaehitusnäitavad suundumust, kuidas laevaehitus Eestis ja Euroopas maailmamastaabis konkurentsivõimelised püsivad, s.o spetsialiseerumine kindlale turunišile ja innovatiivsetele lahendustele. Samas ei saa ära unustada laevaehitussektori olulist 11 kulukomponenti - tööjõukulusid. Kulude kokkuhoidmiseks on mitmed Skandinaavia laevaehitusettevõtted viinud oma tootmistegevuse Poola (Study on the competitiveness recreational boating sector, ECSIP Consortium 2015). Eesti väikelaevaehituse sektor vajab oskustöölisi sellises mahus, mida Eesti tööjõuturg ei suuda pakkuda ning spetsialiste tuleb värvata välisriikidest (nt Ukrainast keevitajaid). Hobilaevandus ja rekreatsioon on kindlasti üks sisenditest väikelaevaehituse nõudluse moodustumisel. Samas on Eesti turg väike ja enamus väikelaevaehituse toodangust läheb ekspordiks. Eestis põhitegevusena lõbusõidu- või töölaevu ehitavad ettevõtted teenisid 2018. aastal müügituluna kokku ligi 57 miljonit eurot (Eesti laevaehitusettevõtted 2018 TalTech Väikelaevaehituse kompetentsikeskuse uuring. Helen Sääsk). Uuringu valimi ettevõtete müügitulus 2017. aastaga võrreldes saavutatud enam kui 9 miljoni eurone ehk 19% tõus põhines pea täielikult Baltic Workboats AS-i tulemusel. Sektori suurim ettevõte teenis töölaevaehituses üle 40 miljoni euro ehk 71% kogu Eesti laevaehituse müügitulust. Ligi 17 miljonit eurot ehk 29% kogu sektori müügitulust teenisid ülejäänud valimi ettevõtted lõbusõidulaevade ehituses. Aastail 2016-2018 oli lõbusõidulaevu ehitavate ettevõtete müügitulu stabiilne, kokku u 16-17 miljonit eurot aastas. Suurima müügimahuga lõbusõidulaevade ehitaja on Aktsiaselts Luksusjaht. Eksport moodustas 2018. aasta laevaehituse müügitulust rekordilised 83% ehk Eesti laevatoodangut eksporditi enam kui 47 miljoni euro väärtuses. Baltic Workboats AS-i töölaevade ekspordi osakaal oli 72% 2018. aasta kogu ekspordimahust. Olulisimaks ekspordi sihtriigiks oli ka 2018. aastal Rootsi, kus Eesti laevaehitusettevõtted teenisid müügituluna ligi 22 miljonit eurot. Töökohti oli valimi laevaehitusettevõtetes 2018. aastal 384 ja tööjõukulud küündisid kokku 10 miljoni euroni. Sektori töökohtade arv on lähiminevikus kasvanud 8-9% aastas, ent tööjõukulud suurenesid 2017. aastal äärmuslikult 23% ja 2018. aastal 19%. Põhitegevusena Eestis laevu ehitavate ettevõtete keskmine lisandväärtus töötaja kohta oli 2018. aastal 40 701 eurot. BLRT Grupi üks olulisemaid tegevussuundi on laevaehitus. Täna on kontsern võimeline välja töötama kontseptuaalseid lahendusi, koostama tehnilisi dokumentatsioone ja ehitama täisvalmis laevu 1.2 Merendussektori SWOT analüüs SWOT analüüsist tulevad välja Eesti merendussektori tugevused, nõrkused, võimalused ning ohud, mis potentsiaalselt avaldavad mõju vastastikuste seoste arengule ja tugeva merendussektori väljakujunemisele. Kuigi neid tegureid on võimalik loetleda oluliselt rohkem, on alljärgnevalt nimetatud vaid olulisemad: Tugevused - Soodne geograafiline asukoht ja looduslikud tingimused - Hea digitaaltehnoloogiline võimekus ning ärikliima - Heal tasemel reisilaevandus ja väikelaevaehitus Nõrkused - Merendussektori selge piiritlematus - Multimodaalse (sadam-maantee-raudtee) transpordivõrgu arendamine 12  - “Pudelikaelad” transpordi taristus - Merendusalase riigihalduse võimekus ei vasta meremajanduse potentsiaalile - Kvalifitseeritud ja tööjõuturu ootustele vastava piisavas mahus tööjõu puudus Võimalused - Ettevõtete efektiivsem koostöö omavahel ning riigi- ja haridusasutustega - Meremajanduse arenguks konkurentsivõimelisema keskkonna loomine - Innovatsiooni arendamine läbi IKT sektori ja merendussektori koostöö võimendamise. Innovaatiliste lahenduste kasutuselevõtt reisi- ja parvlaevaliikluse, meresõiduohutuse jne valdkonnas ning sellele vastav meretööstuse arendamine - Meremajanduse arenguks konkurentsivõimelisema keskkonna loomine (vältida teiste riikide vigu merenduse arendamisel ning saavutada läbi selle parem konkurentsivõime) - Regionaalselt oluliste sadamate parem ühenduvus veeteedega (sadamate aastaringse juurdepääsu tagamine kaasaegsete veeteede ja koordineeritud jäämurdmise teenusega) - Sadamate arengureservi tagamine maismaal (planeeringute kiirem ja parem koordineerimine, kinnistute reservi võimaldamine, piisava teedevõrgu väljaehitamine). - Keskkonnasäästlike rajatiste ja teenuste arendamine nii sadamates kui merendusega seotud logistikaahelates Ohud - Tugev konkurents teiste Läänemere äärsete riikide sadamatega - Sõltuvus välisriikide ja rahvusvaheliste organisatsioonide otsustest ning ettevõtjate kohanemisvõimalused neile. - Eesti ei suuda täita kõiki endale võetud rahvusvahelisi kohustusi. - Tööturu vajadustele mittevastav haridussüsteem ja õppurite vähene huvi, sellest tulenevalt ohustab sektorit merendusspetsialistide arvu langustrend - Kliimamuutustele kohanemine õigeaegselt 13 2. Merenduse arenguprogramm 2.1 Merenduse visioon Meretranspordipoliitika uuel perioodil lähtume visioonist, et Eesti mereala on oluline osa Eesti Vabariigi territooriumist, kus viiakse ellu majanduslikke, kultuurilisi, keskkonna-alaseid ja julgeoleku huvisid. Samas teadvustame, et merendusega seotud küsimused on sageli laia rahvusvahelise mõjuga ning merenduse areng saab toimuda ainult konstruktiivses ja tasakaalustatud rahvusvahelises koostöös. Tulenevalt oma geograafilisest asendist soovib Eesti olla strateegiline partner ülemaailmses tarneahelas ja tagada Eestis pakutava transporditeenuse kõrgeima kvaliteedi. Samas on väga olulised keskkonnateemad, et suudaksime tagada Läänemere ressursi kasutamise kestlikkuse. Eesti merenduse arengu suundadeks on:  ettevõtluskeskkond on ettevõtjasõbralik ja rahvusvaheliselt konkurentsivõimeline; Eesti laevandusettevõtetele ja meremeestele tuleb tagada järjepidevalt võrdsed konkurentsitingimused muu maailmaga. Selleks et ettevõtetele säiliks kindlus investeeringute tegemiseks, peab riiklik toetussüsteem sh. seadusandlus olema pikaajaline, pidevalt seiratav ja vastavalt olukorrale vajadusel hõlpsalt korrigeeritav. Ettevõtete jaoks on suurim arengut pidurdav takistus uute laevade ostu finantseerimine, kuna omavahendid investeeringuteks on piiratud ning laenude saamine keeruline. Seetõttu on vaja analüüsida riigi võimalusi laevandussektori investeeringute soodustamiseks ja vajadusel ka uusi meetmeid rakendada, et toetada ettevõttete konkurentsi- ja ekspordivõimet samaväärselt meie naaberriikidega. Sadamate konkurentsivõime sõltub paljustki juurdepääsust sadamale ning riigipiirini viivast transpordikoridorist tervikuna. Maismaa transporditaristu planeerimisel tuleb muu hulgas arvestada ka sadamate kaudu käideldava kauba mahuga ning investeeringuotsused peavad tagama sujuva kaubavoo liikumise sadamast kuni piirini. Ühtne andmete liikumine erinevate transpordiliikide vahel, konkurentsivõimeline veeteetasu ja keskkonnahoidlikud innovaatilised lähenemised toetavad veelgi enam sadamate konkurentsivõimet ja arengut. Reisilaevaliikluses jätkame sihil, et Eesti oleks väliskülastajatele kiirelt ja mugavalt kättesaadav, mida toetab kaasaegne taristu ning kaubaveod toimivad tõrgeteta. Meretranspordipoliitika tegevuste raames võetakse arvesse heaolu arengukavas 2016-2023 sätestatud ning toetatakse tööandja investeeringute kasvu töötaja töövõime säilitamisse ning töötajale tervist hoidva töökeskkonna loomisesse.  merendus on ohutu, turvaline ja merekeskkonna seisund on paranenud; Ohutu veeliikluse tagamine tugineb paljude näitajate koostoimele nagu näitekshüdrograafiliste mõõdistustööde usaldusväärsed andmed, taristu, liikluskorraldus, ohutud laevad jne. Kõigi eelpoolnimetatu edukas koostoime tagab ohutu veeliikluse. Läänemere intensiivse veeliikluse tingimuses suureneb laevaliikluskorralduse osatähtsus ohutuse tagamisel. Väga oluline on vajaliku navigatsiooniteabe nagu näiteks navigatsioonihoiatused olemasolu ja kättesaadavus ning erinevad innovaatilised lähenemised teabe edastamiseks või kättesaadavaks tegemiseks. 14 Rahvusvaheliselt ja ka siseriiklikult on põhitähtis otsingu- ja päästetööde ning merereostustõrje teenuse kättesaadavus Eesti vastutusalas. Riiklikult ja regionaalselt olulistesse sadamatesse viivad veeteed peavad olema rekonstrueeritud, kaasaegsed ja regulaarselt hooldatud. Sadamate ehitus peab tagama turvalise sildumise ja viibimise sadamas ka ekstreemsete ilmaolude korral.  avaliku sektori tegevused toetavad merenduse arengut; Avaliku sektori esmaseks ülesandeks on efektiivse ja ajakohase õigusraamistiku, avalike teenuste rahastamise ning merenduse arengut toetava juhtimisstruktuuri tagamine. Ohutuse seisukohalt on väga oluline merealade olukorrateadlikkus, valmisolek reageerida ja osutada abi. Avaliku teenusega seotud tugiteenused (veeteede navigatsioonimärgistus, ehitus ja hooldamine) tuleks tagada avalikest vahenditest. Merekeskkonna kaitse strateegiline dokument on merestrateegia ja selle meetmekava, milles sisalduvaga peab meretranspordipoliitika arvestama.  Eesti mereharidus ning teadus- ja arendustegevus on kaasaegsel tasemel; Haridusasutuste pakutav mereharidus peab olema kvaliteetne ja heal tasemel. Haridusasutused arvestavad uute õppekavade käivitamisel merenduse globaalseid ja tehnoloogilisi suundumisi ning sektori vajadusi, et tagada kvaliteetne sektori kasvu tingimusi arvestav tööjõud. Mereuuringute ja -tehnoloogia arendamine aitavad saavutada majanduskasvu, ilma et keskkonnaseisund halveneks. Mereteadus, -tehnoloogia ning -uuringud on merega seotud tegevusvaldkondade säästva arengu jaoks esmatähtsad. Peame väga oluliseks valdkondlikku rahvusvahelist teaduskoostööd.  rannaäärne elu- ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut ning merekultuuri edasi kandmist; Randlusel on kanda kaks suuremat funktsiooni – kohaliku elukeskkonna, elustiili ja kultuuripärandi säilitamine, luues ka vastavaid töökohti, ning merenduse vastu huvi tundvate inimeste kasvatamine, kes asuksid tulevikus tööle merendussektorisse. Rannaäärses ettevõtluses on kesksel kohal turism ja kalandus, mis on omavahel seotud nii taristu kui ka tegevuste kaudu.  Eestis on innovaatiline ja konkurentsivõimeline meretööstus; Meie meremajandusel on lahendada mitmeid ülesandeid – Euroopa mastaabis suure mahuga reisiliikluse teenindamine, seda ka siseliinidel (Virtsu ja Kuivastu sadamates saabuvaid ning lahkuvaid reisijaid kokku u 3,5 miljonit kummaski sadamas), kavandatavate suurenergeetikaobjektide ehitamine ja hilisem teenindamine ning kaubaveo rahvusvahelise konkurentsivõime tõstmine. Soodsa keskkonna olemasolul on võimalik kohaliku meretööstuse areng.  Eesti merendus on integreeritud nii Eesti riiklike kui ka meie liitlaste strateegiliste vajadustega. 15 Riigikaitse vaatest on merenduse valdkonna ohutuse ja turvalisuse arendamine oluline, selleks et tagada nii Eesti üksuste liikumise kui ka liitlaste vastuvõtmise võimalikkus. 16 2.2 Prioriteetsed suunised ja eesmärgid merenduse edendamiseks 2.2.1 PRIORITEET 1 – Merenduse ettevõtluskeskkond on ettevõtjasõbralik ja rahvusvaheliselt konkurentsivõimeline Merendussektoris loodavat lisandväärtust võib hetkel hinnata umbes 3,7-4% SKPst (Merendussektori majandusmõju uuring 2016), mis on võrreldav põllumajanduses loodava lisandväärtusega. Kuigi see on juba arvestatav panus Eesti majandusse, võiks merenduses loodav lisandväärtus olla veelgi suurem – nii olemasolevate tegevuste tõhusamaks muutmise kui ka täiendavate töökohtade loomise kaudu. Arvestades demograafilisi arenguid, võib keskpikas perspektiivis eeldada üldist tööjõu puudust, mis tähendab, et olemasolevad ja lisanduvad töökohad peavad olema suure tootlikkuse ning lisandväärtusega. Merendussektoris on võimalik luua kõrge lisandväärtusega töökohti, mis aitaksid kaasa Eesti majanduse konkurentsivõime tõstmisele. Selleks tuleb keskenduda tegevustele, milles meil on konkurentsieeliseid ning neid tugevdada. Oluline on ka merendussektori tegevuste positiivset kuvandit luua, et pikas perspektiivis tagada sektori atraktiivsus tööjõu hulgas. Mõjunäitajad:  Merendussektori ettevõtetes loodava lisandväärtuse kasv aastas on suurem kui SKP kasv (%). (Eesti Panga majandusprognoos 2019-2022 SKP (%) eeldatav kasv aastal 2022 2,4 %).  Töötajate arv sektoris on 2035. aastaks on 25 000. Merendussektori majandusmõju uuringu 2016 andmete põhjal moodustasid merendusega seotud ettevõtted 3,7-4% SKPst ja töötajate arv sektoris oli hinnanguliselt 9100. Mõjunäitajaid on keeruline hinnata, kuna vajaminevaid andmeid ja statistikat ei ole vajalikus mahus ja avalikult kättesaadavad. Et hinnata merendussektori mõju majandusele, tuleb hetkel hinnata igat ettevõtet eraldi. Pidevalt seiratav ja kättesaadav statistika annaks võimaluse teha paremaid ja sektorit efektiivsemalt toetavaid otsuseid vahetult. Lahendus: Tegevus Täitja ja kaastäitjad Vajab/ei vaja rahalist ressurssi Määratleda ja piiritleda selgelt Majandus- ja Ei merendussektor Kommunikatsiooniministeerium (MKM), jt. ministeeriumid Merendussektori statistika MKM jt. ministeeriumid, Jah kättesaadavuse sh vastava Statistikaamet regionaalstatistika kättesaadavuse parendamine (merendussektori ettevõtete peamised majandusnäitajad, sektoris hõivatute arv ja osatähtsus, sadamakülastused, sadamate kaudu liikuvate kaubavoogude ja reisijate hulk jmt). 17  Tellida mõjunäitajate alusuuring. MKM Jah Uuringu raames valmib nö tööriist, mida saab mõjunäitajate leidmisel/hinnangu andmisel edaspidi kasutada ja operatiivselt tulevikuotsuseid vastu võtta Eesmärk 1 – Eesti laevandus on rahvusvaheliselt konkurentsivõimeline Tulemusnäitaja: Eesti lipu all sõitvate üle 500GT kaubalaevade arv kasvab vastavalt laevandussektori konkurentsivõime projektis seatud eesmärkidele. Eesti lipu all sõitvate üle 500GT kaubalaevade arv on 2030. aastaks vähemalt 50 (tulemusnäitaja tuleneb meretranspordipoliitika arengukava 2012-2020 seatud eesmärkidest). Hetkeolukorra kirjeldus 1. juulil 2020. aastal rakendus Eesti laevandussektori konkurentsivõimet tõstvate meetmete pakett, et luua soodsamad tingimused laevade Eesti laevapereta prahitud laevade registrisse registreerimiseks ja selle läbi Eesti lipu all sõitva laevastiku suurendamiseks. Seaduse muudatusega ei kaasne Eestis vetes ja Läänemeres liikuvate laevade arvu suurenemine, kuna muudatused ei mõjuta kauba liikumist läbi nende piirkondade. Laevade Eesti registris registreerimise tulemusena suureneb Eesti registrisse kantud ja Eesti lipu all sõitvate laevade arv ning läbi tekkiva mereriigi maine tekib Eestisse järjest enam kaldasektori ettevõtteid. See omakorda loob aluse Eesti majanduse kasvule. Oluline on tagada Eesti laevandusettevõtetele võrdsed konkurentsitingimused vähemalt naaberriikidega. See tähendab nii laevade opereerimisega seotud kulude lähendamist konkurentidele kui ka laeva opereerimisega seotud administratiivsete toimingute efektiivsemaks muutmist. Sealjuures peab rakendatav süsteem olema pikaajaline, et tagada ettevõtetele kindlus investeeringute tegemiseks. Laevastiku suurendamiseks ja uuendamiseks tuleb analüüsida laevandusettevõtete vajadusi arvestavate riiklike tagatiste andmise vajalikkust ja võimalusi, Eestil on märkimisväärne reisilaevastik. Kogumahutavusega 100 ja üle selle oli seisuga 01.01.2020 Eesti laevaregistris 16 reisilaeva kogumahutavusega 48823, väiksemaid 6 laeva kogumahutavusega 296. Võrreldes 2019. aastaga on reisilaevade arv vähenenud mõlemas kategoorias ühe laeva võrra. 2019. aasta detsembris sai Eesti Euroopa Komisjonilt loa tonnaažimaksu ning kaubalaevade laevapere liikmete tööjõumaksude maksusoodustuste kehtestamiseks, mis jõustusid käesoleva aasta 1. juulil. Kaubalaevade maksusoodustuse kavandamise ajal sai reisilaevu puudutavat regulatsiooni pidada heaks, kuna Eesti lipu all oli mitmeid reisilaevu ning majandus- ja konkurentsiolukord soodne. Koroonaviiruse leviku tõttu on reisilaevandusettevõtjad sattunud aga kriitilisse olukorda. Negatiivsete majandusmõjude leevendamiseks sektoris on vajalik rakendada meetmeid tööjõuga seotud maksukoormuse vähendamiseks. Sellest tulenevalt on Eesti välja töötanud toetusmeetme reisilaevandusettevõtjatele. Meetme kohaselt makstakse Euroopa Majanduspiirkonnas rahvusvahelisi reise tegevale reisilaevandusettevõtjale kord kvartalis toetust summas, mis on võrdne laevapere liikmele väljamakstud töötasult arvestatud tööjõumaksude ja maksubaasilt (vastavalt ametikohale 1,5 või 2,5 kuupalga alammäär) arvutatud tööjõumaksude vahega. Tulenevalt merenduse riigiabi suunistest laieneb toetus üksnes Euroopa Majanduspiirkonna lepinguriigi või Šveitsi Konföderatsiooni kodanikust või nendes riikides seaduslikult elavast isikust laevapere liikmetele tasutud töötasule. Eesti soovib 18 toetust maksta alates 2020. a III kvartalist kuni 2023. a IV kvartalini, st esimene väljamakse tehtaks 2020. a oktoobris ning viimane 2024. a jaanuaris. 02.06.2020 esitati Euroopa Komisjonile riigiabi eelteatis.  Laevandussektori konkurentsivõime tõstmisele suunatud meetmed peavad olema järjepidevad ja pidevalt seiratavad.  Tööjõupuudus ja palgasurve – noortel peab olema perspektiivi töötada merendussektoris ja Eesti lipu all sõitvatel laevadel.  Laevaehitus ja -remondisektor vajab spetsiaalselt neile loodud ja sektori vajadusi arvestavate riiklikke tagatiste süsteemi. Laevandussektor on pankade jaoks vähetuntud ja seotud suurte riskidega, see aga pärsib laevandussektori arengut ja uute laevade soetamist. Lahendus: Tegevus Täitja ja kaastäitjad Vajab/ei vaja rahalist ressurssi Laevandusettevõtjatele riiklike MKM, jt Jah tagatiste ja garantiide süsteemi ning ministeeriumid toetusmeetmete (mh laevadele kehtestatud keskkonnanõuete täitmiseks) analüüs, väljatöötamine ja rakendamine Reisilaevandust toetavate meetmete MKM, Jah. Koostada mõju- väljatöötamine ja rakendamine Rahandusministeerium uuring 2022. aasta (RaM) andmete seisuga. Kalalaevandussektori Maaeluministeerium Jah. Koostada uuring konkurentsivõimet toetavate meetmete (MeM), MKM jt väljatöötamine ja rakendamine ministeeriumid Eesti laevaregistrite järjepidev MKM Jah turundamine rahvusvaheliselt Laevade andmekogude MKM jt Jah harmoniseerimine ja parem ministeeriumid andmevahetus Eesmärk 1.1 – Kogemustega merendusspetsialistide järelkasv on jätkusuutlik ning toetab sektori arengut Tulemusnäitaja: Tegevmeremeeste arv on stabiliseerunud Hetkeolukorra kirjeldus Ligikaudu 50% Eesti meremeestest töötab täna välislippude all sõitvatel laevadel, mistõttu Eesti laevandusettevõtete otsene käekäik ei mõjuta nende Eesti meremeeste olukorda, mistõttu tuleb jätkusuutliku järelkasvu tagamiseks jälgida ka nende meremeeste arvu muutuste trende, sest meresõidukogemusega merendusspetsialiste on vaja eeldatava kaldasektori suurenenud tööjõuvajaduse katmiseks. Veeteede Ameti andmetel oli Eestis 2014. aastal kehtivate meresõidudokumentidega laevapereliikmeid 9600 ning 2019. aastaks oli see arv langenud 8205 inimeseni. Nimetatud 19 langusest on võimalik hinnata, et ligikaudu 150-200 kehtivate meretöödokumentidega laevapereliiget on suundunud tööle mõnele muule erialale, mis võib tuua sama trendi jätkumisel kaasa järgmisel kümnendil hinnanguliselt 1500-2000 laevapereliikme suundumise teise sektorisse ning seega tekitada kogemustega merendusspetsialistide defitsiidi. Mereõppeasutuste lõpetanute arvus on samuti olnud aastatel 2015-2019 püsiv langustrend. Eestis pole seni läbi viidud põhjalikku uuringut, mis selgitaks asjaolusid, mis on konkreetselt sellise trendi taga. Põhiprobleemina saab välja tuua, et meremehe amet on ebastabiilne ja ebaatraktiivne, kuna puudub sotsiaalsete garantiide süsteem. Maksutase on küll muutunud konkurentsivõimelisemaks ja lisanud valikuvõimalusi, aga ei hõlma suuremat osa huvigrupist. Võib ka öelda, et maksusüsteem on muutunud pigem komplitseeritumaks ning ebaselgemaks. Samuti tekitavad meremehes ebakindlust tähtajalised töölepingud. Pangad peavad meremehe elukutset suurenenud riskiga ametiks ning tihti kohaldatakse rangemaid (kõrgem eluasemelaenu intress, kõrgem sissemakse jms) tingimusi. Suurema osa meremeeste majandus- ja ettevõtlusalane haridus on puudulik. Lahendus: Tegevus Täitja ja Vajab/ei vaja kaastäitjad rahalist ressurssi Analüüsida meremeeste sotsiaalseid tagatisi ja SoM, jt Jah tulemusena töötada välja lahendus, mis arvestab nii ministeeriumid töötajate kui ka tööandjate huve samaaegselt laevanduse konkurentsivõime tõstmisega. Siinkohal tuleb arvestada ka erinevate töötajate võrdse kohtlemise põhimõttega, millest tulenevalt peab isikute ebavõrdne kohtlemine olema asjakohaselt põhjendatud (nt kaldatöötajad vs merel töötajad). Konkurentsivõimeline maksukeskkond peab olema RaM Ei võimaldatud võimalikult laiale Eesti residentidest meremeeste ringile. Lisada merenduse õppekavadesse või luua eraldi Haridus- Jah kursused järgnevatel teemadel: meremeeste ministeerium tööõigused, sotisaaltagatised, rahvusvaheline (HTM) maksustamine, töötervishoid ja -ohutus. Eesmärk 2 – Kaubavood Eesti sadamate kaudu on suurenenud Alameesmärgid: 20 1) Kaubavedude maht on lähiriikide sadamatega võrreldes konkurentsivõimeline 2) Sadamateenused on rahvusvaheliselt konkurentsivõimelised Mõjunäitajad:  Sadamate kaubakäive on 2035. aastal vähemalt 50 miljonit tonni. 2019. aasta seisuga sadamate kaubakäive 38 miljonit tonni.  Konteinervedude maht aastatel 2021-2035 suureneb (2019. aasta vastav näitaja 242 060 TEU-d). Hetkeolukorra kirjeldus: Viimastel aastatel on stabiliseerunud ekspordile keskendunud sadamate kaubamahud, kuid üleilmse pandeemia tõttu on 2020. aasta teises kvartalis kaubamahud vähenenud. Hetkel ei ole hinnatav, kas mõju on pikaajaline või taastuvad kaubamahud pärast haigusepuhangut kiiresti. Negatiivsete mõjude leevendamiseks vähendati seadusemuudatusega laevandusettevõtete kulusid perioodil aprill 2020 kuni märts 2021 veeteetasu maksmise kohutuse ajutise peatamisega. Suletud riigipiiridega olukorras on laevandus- ja sadamaettevõtete jätkusuutlikkus ning säilimine strateegilise tähtsusega. Arvestades Eesti asukohta Läänemere ääres, tuleb riigil tagada piisav jäämurdevõimekus, et võimaldada stabiilse majandustegevuse jätkumist ka talveperioodil, kui meri jäätub. Jääkatte ulatus Eesti vetes sõltub perioodi valdavatest tuultest ja on seetõttu muutlik. Viimased kolmkümmend aastat on olnud ülekaalus keskmised ja pehmed talved. Sõltumata talve raskusastmest on vajadus jäämurdeteenuse järele püsiv. Riik peab analüüsima olemasolevat jäämurdevõimekust ja hindama selle piisavust. Hetkel on Väinamere-äärsed sadamad 3-4 kuud talveoludes kaubavedudele suletud ja seega teiste sadamatega võrdluses halvemas konkurentsipositsioonis. Kliimamuutuste tagajärjel ei ole Eestis viimastel aastatel külmi talvesid olnud ja tõenäoliselt soojemad talved jätkuvad (2019-2020 talvel jäämurdeteenust üheski sadamas ei vajatud, mis ei välista järgnevate aastate vajadust). Eesti põhjarannikul paiknevad sadamad on üldjuhul hästi ligipääsetavate veeteedega. Eesti lääneranniku suuremate sadamate puhul on avaliku liiniveo pakkumiseks kasutatavad veeteed probleemsed Rohuküla, Heltermaa, Pärnu ja Roomassaare sadamates. Veeteede piisava sügavuse ja laiuse saavutamine on ühekordne mahukas investeering, mis võrrelduna maismaataristu objektidega on oluliselt väiksem ja pikema elueaga. Teine ja samaväärselt oluline aspekt on sadamarajatiste piisavus ohutu sadamateenuse pakkumiseks. Enamik Eesti kauba- ja reisisadamatest on avatud ja poolavatud veealade/akvatooriumitega samal ajal kui paljudes kaasaegsetes võrreldavates sadamates konkureerivates riikides (Läti, Leedu, Poola, Rootsi) on sadamaalal lainemurdjad ja kaitsemuulid väga heade tingimuste tagamiseks olemas. Võttes arvesse asjaolu, et kliimamuutuste mõju on mitmesuunaline – kliima soojenemine on toonud kaasa sadamarajatiste senisest oluliselt kiirema amortiseerumise, kuna meri on sügis- talvisel tormiperioodidel üha kauem jäävaba – siis tuleb leida võimalus sadamate kaitserajatiste väljaarendamiseks ja selle otstarbeliste projektide rahastamiseks. Sadamad ei saa toimida maapealse transporditaristuta, siis on oluline vaadata sadamate arendamisel kogu transpordiahelat ehk tagamaad. Samuti peavad sadamas olevad laevad olema kaitstud tuule ja 21 lainete kahjustava mõju eest, mistõttu tuleb enam tähelepanu pöörata sadamarajatiste ehitusele, et olla valmis muu hulgas kliimamuutustest tulenevate mõjudega kohanemiseks. Transiitkaubanduse puhul on osaliselt probleemiks poliitilised suhted Venemaaga, mis on viinud kaubavahetuse languseni maismaa transpordikoridoride ja Eesti sadamate kaudu. Samuti avaldab hetkel kaubavedudele negatiivset mõju raudtee infrastruktuuri kõrged tasud. Sadamate konkurentsivõime seisneb transporditava kauba või reisijate aastaringselt tagatud ja regulaarses toimetamises võimalikult lähedale lõplikule sihtkohale või multimodaalse logistikaskeemi puhul võimalikult lähedale ümberlaadimise kohale või transiitjaamale. Lahendus: Tegevus Täitja ja kaastäitjad Vajab/ei vaja rahalist ressurssi Veeteetasude analüüs MKM Saamatajäänud tulu logistikaahela konkurentsivõime tõstmiseks Analüüsida või koostada uuring, MKM Jah milles käsitletakse eraldi iga sadamat (TENT-T jt) – võimekus, millest on muutused tingitud, laevateede olukord-võimekus laevu vastu võtta, navigatsioonimärgistus, jäämurdeteenus. Analüüsida jäämurdevõimekuse MKM Jah mahu vajadust Toetusmeetmed ja info nende MKM, Jah kohta ühest kesksest kohast sh. Keskkonnaministeerium Euroopa keskrahastust pakutavate (KeM), meetmete kasutamise toetamine Siseministeerium (SiM), ministeeriumide poolt. Sadamaregistri arendustööd, sh MKM, MeM, RaM Jah sadamate liigitus (sh väikesadamad) Määratleda riiklikud vee- ja MKM Esimene samm raha ei nõua, laevateed ja nende aga peale analüüsi järgmised konkurentsivõime etapid on kulukad ja vajavad eelnevat poliitilist heakskiitu. Logistikaahela digiteerimine ning MKM Jah andmete liikumine erinevate transpordiliikide vahel (standardiseerimine) Eesmärk 3 – Reisijate arv rahvusvahelistel laevaliinidel on suurenenud Mõjunäitajad: 22   Rahvusvahelistel liinidel on aastane reisijate arv alates 2021. aastast 2019. aasta tasemel (u 11 miljonit reisijat) ja kasvab.  Kruuisituristide arv on 2021. aastal vähemalt 500 000. Hetkeolukorra kirjeldus: Eesti sadamaid väisas 2019. aastal üle 10,7 miljoni inimese rahvusvahelistel liinidel. Kruiisihooajal saabus Eestisse ligi 676 400 kruiisireisijat. 2018. a külastas Tallinna üle 645 000 kruiisireisija, kes jätsid siia keskmiselt 80 eurot külastusega ehk kokku üle 50 miljoni euro ning andsid otseselt tööd hinnanguliselt sadadele inimestele. Peamistel Eesti-sisestel laevaliinidel oli sõitjaid ligi 2,6 miljonit ehk 104 500 enam kui 2018. aastal. Neil liinidel tehti üle 16 700 reisi ja teenindati 1,1 miljonit sõidukit, üle 50 900 sõiduki enam kui varasemal aastal. Sõidukitest 71% olid sõiduautod ning ligi neljandik veoautod ja haagised. Eesti on turistide poolt hinnatud ja väärtustatud sihtkoht meie imekauni looduse, kultuuri, ajaloo ja rahvapärandi tõttu. Turistide jaoks ei ole vähetähtis ka asjaolu, et Eesti on turvaline riik, kuna terrorismioht ja kuritegevuse tase on madal ning looduskatastroofide võimalikkus väike. Arvestades suurenevat (kruiisi) turistide hulka on suurimaks väljakutseks Eesti kui sihtkoha taluvuspiir. Suureks plussiks on ka viisavabadus Venemaaga – kruiisireisijad saavad teatud ajaks viisavabalt siseneda Peterburi. Arvestada tuleb ka stsenaariumiga, kus senise kruiisiturismi mahule orienteeritud teenus muutub, mistõttu tuleb soodustada ka regionaalseid reisi- ja kruiisilaevanduse arendamiseks suunatud arendusprojekte. Eesti regionaalarengu strateegias 2014-2020 nähakse regulaarsete meritsi otseühenduste toimimist Läänemere lähiriikidega prioriteetsena just Lääne-Eesti saarte, Ida-Virumaa ja pealinnaregiooni vahel. Uute võimalike ühenduste loomiseks on vaja teostada eeluuringud, viia läbi teostatavus- ja tasuvusuuringud ning võimalusel kavandada investeeringutoetused ja dotatsioonid. Analoogselt lennuliiklusega tuleb kaaluda võimalusi rahvusvaheliste regionaalsete laevaliinide toetamiseks garantii-, laenu- või toetusmeetmetega. Siinkohal on samuti hetkel raske hinnata, milline on üleilmse COVID-19 pandeemia mõju reisimisele ja turismile tervikuna. 2020. aastal kehtivad mitmed piirangud riigipiiride ületamiseks, sh tühistasid kruiisifirmad ka paljud suvised reisid. Hetkel püsib maailmas ebakindlus ja teadmatus riigipiiride avamise ja inimeste reisijulguse osas. Pidevalt suureneva kruiisilaevade reisijate arvuga suureneb Eestil WHO liikmena Rahvusvahelise Tervise-eeskirjade (IHR 2005) kohustuse täitmise tähtsus meretranspordil, mille eesmärgiks on vältida, kaitsta, kontrollida ja rakendada rahvatervise tõrjemeetmeid rahvusvahelise levikuga haiguste vastu viisil, mis vastab ja piirdub rahvatervise ohtudega ning mis väldib rahvusvahelise liikluse ning kaubanduse mittevajalikku häirimist. Lahendus: Tegevus Täitja ja kaastäitjad Vajab/ei vaja rahalist ressurssi 23  Müüa Eestit kui sihtkohta – MKM, EAS Jah piiriülene koostöö ja ühtne sihtkoha turundus. Leida võimalusi hobiturismi MKM Seotud EASi arendamiseks merel turismiettevõtete ärimudelite (väikealused, huvialused…) rakendamise toetusega Võimalikud uued sihtkohad, MKM Jah sesoonsed kruiisiliinid, Väinamere ja Liivi lahe kruiisiturism Riigi taristul liikuvuse MKM Esmalt vaja kaardistada parandamine sh hetkeolukord siseveeteedel Laevadel kaldaelektri või MKM Jah analoogsete keskkonnasäästlike tehnoloogiate kasutamise soodustamine (ja ka toetamine) regulaarsetele reisilaevadele Jäätmete ringmajanduse KeM, MKM Jah toetamine IHR 2005 eesmärkide Sotsiaalministeerium (SoM), Ei saavutamine – aluseks on Terviseamet (TA), MKM õigeaegselt kaasajastatud õiguskeskkond ning optimeeritud infovahetus ja koostöö rahvusvaheliste kauba- ja reisijatevedudega tegelevate ettevõtjate, rahvusvaheliseks liikluseks avatud sadamate ning seal kontrolli teostavate ametkondadega. Eesmärk 4 – Eesti laevaehitus ja -remont on rahvusvaheliselt konkurentsivõimelised Mõjunäitaja: laevaehituse sektori lisandväärtus töötaja kohta on 2035. aastal vähemalt 45 000 eurot (2018. aasta näitaja 40 701 eurot). Eesti ettevõtted on võimelised edukalt konkureerima eelkõige eriotstarbeliste ja väikelaevade ehituse turul. Lisaks laevade ehitamisele omatakse kompetentsi ka nafta- ja energeetikasektoriga seotud seadmete ehitamisel. Laevaremondi osas on võimalik konkureerida laiemal turul, kuid hetkel on piiravaks teguriks suurte laevade aastaringseks remondiks vajaliku taristu puudumine. Tuleb arvestada ka, et laevaehitus ei ole homogeenne sektor ning sõltuvalt ettevõtete profiilist on mõneti erinevad ka arengueeldused. Nii eriotstarbeliste laevade ehitamise kui ka hobi- ning huvilaevade ehitamise segmendis on aga konkurentsivõime 24 tõstmise põhilisteks eeldusteks tööjõu kättesaadavus ja kvaliteedi tõstmine ning taristu arendamine. Peamiseks probleemiks on piisava hulga oskustööjõu puudumine. Üha enam tõusetub horisontaalse merendushariduse teema. Üks inimene peab olema pädev nii inseneri-, IT- ja mereteaduses. Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Tootearenduse ja eksporditurunduse alase MKM jt Jah koostöö soodustamine ja tegevuste ministeeriumid toetamine Eesti laeva- ja paaditoodangu turundamine MKM Ei ja usaldusväärsuse tagamine (turujärelevalve tõhustamine) Valdkonna statistika kättesaadavuse MKM ja sektor Jah/eelkõige oodatakse siin parandamine riigi tuge partnerluse näol. Leida võimalused ettevõtete MKM Jah krediidivõimekuse toetamiseks Laevandussektor on valdkond, mis tegutseb rahvusvahelisel turul ning valib tegutsemiseks kõige kasumlikumad piirkonnad, seda nii geograafilise paiknemise kui ka lipuriigi osas. Samas on laevandus tugevas seoses maismaa merendussektori ettevõtlusega, mida ilmestavad uuringute tulemused, mille kohaselt väidetakse, et üks töökoht merel loob 3-6 töökohta maismaal(Eesti laevandussektori konkurentsivõime tugevdamine, 2014). Rahalises vääringus loob iga laevanduses teenitud 1 miljon eurot lisaks veel 1,6 miljonit eurot mujal majandussektorites (Oxford Economics, 2014). Kogu Euroopa laevandust hõlmava uuringu2 kohaselt tekitab üks töökoht laevas juurde 3,8 töökohta kaldal. Hollandis läbiviidud uuringute põhjal tekitab iga uus töökoht merel juurde kolm uut töökohta kaldal. Taani on riiklikult deklareerinud: „hea (seadusandlik) raamistik aitab kinnistada laevu Taani lipu alla, mille tulem on merendusalase kompetentsi lisandumine. Ilma laevadeta ei oleks Taanil võimalik säilitada merendusklastrit. Kui umbes 12 000 ‒ 14 000 inimest töötab laevapere liikmetena, siis umbes 80 000 inimest töötab merendusklastris tervikuna (umbes 6% kogu erasektori tööjõust Taanis). Laevandusettevõtete kaldapersonali palgad ületavad keskmist palgataset. Seetõttu on oluline jätkata riiklikul tasemel alustatud laevanduse konkurentsivõime tõstmise meetmete rakendamist eesmärgiga leida kompromisslahendus nii riigi kui ka laevaomanike seisukohast lähtuvalt. Tuues laevad Eesti lipu alla ja hoida neid Eesti lipu all on võimalik kasvatada riigi sissetulekuid mitmel eri tasandil: laevade arvu kasv laevaregistris, lisanduvad sissetulekud laevafirmade tegutsemisest Eestis jmt. Laevandusfirmade kasv Eestis suurendab nõudlust merendusspetsialistide järele, millest osa kaetakse kohaliku tööjõuga ja osa välismaiste spetsialistidega. Lisaks näitavad Veeteede Ameti tellimusel koostatud mudel- arvutused, et 20-aastase perspektiiviga suureneks riigi maksutulu lisanduva 250 laeva pealt 245 miljonit eurot.. See tähendab SKT osakaalu 1,1 protsendilist suurenemist. Üks Eesti lipu all seilav keskmise suurusega kaubalaev tooks riigile registritasudena ning sertifikaatide 2 Oxford Economics 2014 ja 2015: „The economic value of the EU shipping industry“ 25 väljastamise ja muude tegevustega 20 000–25 000 eurot aastas. Oluline on siinkohal rõhutada, et laevandust ei saa käsitleda ühe osana Eesti ekspordist, vaid tuleks käsitleda eraldiseisva tööstusharuna ja osana maailmalaevandusest. Lisaks tuleks investeerida ning toetada välismaiste laevandusettevõtete tegevuse alustamisesse Eestis – soodsat ettevõtluskeskkonda, kaasaegseid info- ja kommunikatsioonitehnoloogia (IKT) lahendusi vms arendades ning turundades. Sadamate potentsiaali ärakasutamiseks on vajalik analüüsida Eestit läbivate transpordikoridoride konkurentsivõimet ja selle kasvu võimalusi. Sadamate ja laevanduse alamklaster moodustavad kaubavoogude meritsi liikumise selgroo, mis on tihedas seoses maismaa transpordikoridoridega. Samas on eelpool välja toodud analüüside tulemusel sadamate kaubavoogude mahud kahanemas, mille tulemusel on riiklikul tasandil vajalik ning koostöös vastava sektoriga leida võimalikud lahendused Eestit läbivate transpordimahtude suurendamiseks ning meetmete väljatöötamiseks. Samas sadamate alamklastri osakaal on laevanduse järel teisel kohal moodustades 1/3 merendussektori SKP-st. Leida lahendused merendusalase statistika kogumiseks ning ettevõtete EMTAK klassifikaatorite põhiseks määratlemiseks. Merendusettevõtted ei määratle ennast kui merendusega tegelev ettevõtte EMTAK2008 klassifikaatorite põhiselt, hoolimata asjaolust, et see on nende tuumiktegevus. Samas nii Eesti põhise kui ka rahvusvahelise statistika andmete kogumise aluseks on EMTAK klassifikaatorid. Juhul kui merendusega seotud ettevõttel ongi mitu tegevusala, siis tuleks statistiliste andmete kajastamisel leida võimalus merenduse tegevusala osakaalu väljaselgitamiseks ja kajastamiseks. Seetõttu tuleks leida riigi- ja erasektori omavaheline lahendus 45 merendusettevõtete EMTAK põhi- ja kõrvaltegevusalade määratlemisel ning nende info kajastamisel statistilistes andmetes. Teadus-haridusasutuste, eraettevõtete ja avaliku sektori vahelist koostööd on vaja tugevdada. Rahvusvaheliste merenduskonverentside peamiseks sõnumiks on kujunenud innovatsiooni, digitaliseerimise, inseneriteaduste areng jms säilitamaks merendussektori konkurentsivõimet ja jätkusuutlikust. Eriti tugevalt on seda hetkel esile toodud Euroopas, kus mitmed tööstused nagu näiteks laevaehitus ei suuda konkureerida Aasia riikidega (Hiina, Lõuna-Korea, Jaapan). Samas on Euroopa laevaehitus leidnud väljapääsu spetsialiseerumises kallimate ja tehniliselt keerulisemate laevade sektoris (nt reisi- ja kruiisilaevad ning jäämurdjad, eriotstarbelised laevad - naftapuurtornide teeninduslaevad ja tööstuspersonali vedavad laevad, süvendajad jne), pakkudes tellijatele mitmeid innovaatilisi lahendusi. Uute lahenduste loomine saab toimuda ainult teadusasutuste ja erasektori koostöös ning seeläbi haridusasutustest kõrgetasemeliste lõpetajate tootmisel tööturule. Viimasel ajal on väga tugevalt esile kerkinud automatiseeritud ja isesõitvate laevade kontseptsioon. Paljud riigid ja ettevõtted töötavad selle nimel, et just esimesena oma lahendus turule tuua. Näiteks on Soome riik, koostöös Wärtsila, Rolls-Royce jt ettevõtetega alustanud isesõitvate laevade väljatöötamist, eesmärgiga neid 2025. a Läänemeres kasutusele võtta (World Maritime News, 2016). Kuna tegu on tulevikutrendiga, ei tohi Eesti siin teistest maha jääda: seda nii IKT sektori sidumises laevandusega, kui ka vastavate infotehnoloogiliste teadmiste ja digipädevustega varustatud merendustööjõu ettevalmistamisel. Tänapäeva kiirelt muutuvas maailmas on hädavajalik, et mereõppeasutuse lõpetanu oleks lisaks akadeemilistele teadmistele varustatud ka hetkeolukorrale vastavate praktiliste teadmistega. Selles osas oleks oluliseks panuseks laevanduse kaldasektoris töötavate inimeste kaasamine lektoritena. Täna on need võimalused piiratud, kuna Eesti laevanduse kaldasektor on väga väike võrreldes teiste riikidega. Kokkuvõtvalt võib öelda, et mereõppeasutustel on vaja kaldasektorit 26 kvaliteetse õppe tagamisel ning kaldasektoril ja laevadel on vaja mereõppeasutusi pideva spetsialistide sissevoolu tagamiseks. Merendusalase teadustöö aspektist lähtudes on oluline keskenduda nendele teadustöö valdkondadele, mis soodustavad Eesti meremajanduse kasvu ning vajalik on leida võimalusi merendusalase kompetentsi integreerimisele (interdistsiplinaarsus) teiste teadustöö valdkondadega nagu näiteks infotehnoloogia, küberjulgeolek, materjaliteadus jms. Oluline koht teadus-haridustöös on toimiv rahvusvaheline teaduskoostöö, teadmussiire välismaiste merenduse spetsialistide ja institutsioonidega, mida omakorda toetab konkurentsivõimeline ja sidus merendusklaster Piisava hulga kvalifitseeritud tööjõu tagamine on samuti üks võtmeteguritest. Merehariduse peamiseks eripäraks on asjaolu, et hariduse omandanud valdkonna spetsialistid siirduvad enamasti lõpetamise järel vastavasse sektorisse tööle, mis näitab lõpetajate sobivust tööjõuturule (Kuuse & Kopti, 2016). Samas on erinevate tööjõuturu uuringutes välja toodud mitmeid kitsaskohtasid kvalifitseeritud tööjõu piisavuse osas (nt laevaehitusinsenerid, elektrimehaanikud, kalandusspetsialistid, külmutusmehaanikud), mille osas on vajalik välja töötada edasised meetmed kolmepoolseks koostööks avaliku-, erasektori ja haridusasutuste vahel leidmaks lahendused vajalike spetsialistide koolitamiseks. 2.2.2 PRIORITEET 2 - Merendus on turvaline ja ohutu. Merendus on keskkonnasäästlik ja kliimaneutraalne Mõjunäitajad: Meretransport on kliimaneutraalne. Laevaõnnetuste ja ohtlike intsidentide koguarv on aastas alla viie. Merel juhtuvate õnnetuste (mh väikelaevad, punase raketi teated jne) ja mereabisündmuste hulk väheneb vähemalt 30% (aastas hetkel u 250 juhtumit). Keskkonnaalased valdkondlikud probleemid, millega tuleb arvestada hõlmavad järgnevat: õhusaaste laevadelt, reovesi laevadelt, naftareostus, laevakerede kattumisvastased värvid, ballastvee ja laevakerega seotud võõrliikide sissetoomine, laevadelt pärinev prügi, laevade põhjustatud müra (sh veealune), laevade põhjustatud lainetuse mõju rannikule, mõju elupaikadele ja liikidele. Peame tähtsaks jätkusuutlike alternatiivkütuste kasutuselevõtu arendamist laevandussektoris nii suuremahulises meretranspordis kui ka sisevee laevanduses, mille heitmete mõju inimesele on vahetum. Jätkusuutlike alternatiivkütuste kasutuselevõttu tuleb laevandussektoris kindlasti arendada. Seda nii mahult suuremas meretranspordis kui ka siseveekogude laevanduses, kust tulenevate heitmete mõju inimesele on vahetum. Alternatiivkütuste kasutuselevõtul/ merekütuste dekarboniseerimisel võiks eeskuju võtta maanteetranspordis tehtud/tehtavast tööst. Sealhulgas tuleks sarnaselt maanteetranspordis kasutatava biokütusega hinnata ka laevanduses kasutusse võtvas kütuses kogu kütuse elukaare süsinikujalajälge. Laevanduses kasutamist saavatel alternatiivkütustel tuleks hinnata kogu KHG mahukust, et vältida situatsiooni, kus CO2 heide küll väheneb, kuid suureneb mõni muu heide, mis on keskkonnale või inimese tervisele kahjulik. 27 Toetame teadusuuringute rahastamise suurendamist eesmärgiga selgitada välja efektiivsemaid ja keskkonnasäästlikke tehnoloogilisi lahendusi alternatiivkütuste kasutamiseks laevanduses, nii uute kui ka olemasolevate laevamudelite puhul. Kai ääres seisvate laevade õhusaastet aitavad vähendada toimivad digitaaltehnoloogilised lahendused, millega on võimalik vähendada laevade asjatuid seismisi sadamas ja reidil, muutes töö operatiivseks. Kliimaneutraalsuse saavutamisele aitavad kaasa:  Emissioonivabad laevad sadamas seistes ja sissesõidul. Laevadel kaldaelektri (OPS – on-shore power supply) või analoogsete keskkonnasäästlike tehnoloogiate kasutamise soodustamine (ja ka toetamine) regulaarsetele reisilaevadele sh. laevade lülitumist kaldalelektrivõrguga sadamas seismise ajal (soodsamad tariifid ja maksude soodustamine).  Energiatõhusate kaasaegsete tehnoloogiate kasutuselevõtu soodustamine (automaatsildumise seadmete, laevade alternatiivkütuste kasutuselevõtu eelistamine ja punkerdamisturu loomine).  Jäätmete ringmajanduse osakaalu suurendamine.  Keskkonnaalased diferentseeritud sadamatasud sadamates vältimaks konkurentsi keskkonnasäästu arvelt. Eesti sadamate laevateede, akvatooriumite ja kaldarajatiste arendamisel tuleb arvestada kliimamuutuste mõjuga keskkonnale. Jäävabad tormiperioodid eeldavad sadamate kaitserajatiste väljaarendamise järgneva 10-15 aasta jooksul tagamaks olemasolevate ja arendatavate sadamarajatiste säilimise ja investeeringute otstarbeka kasuliku eluea. Samuti on väga olulisel kohal teaduspõhiste lahenduste väljatöötamise toetamine ja kommunikatsiooni koordineerimine (keskkonnasäästlikud laevakütused ja tehnoloogiad, digiteerimine) ning üleüldine mereolukorra teadlikkus ja info jagamine. Hüdrograafilised mõõdistustööd Laevateede rajamine ja rekonstrueerimine Eesti laevateede mõõdistusvõimekus on kaasaegsel tasemel ja kogu vajaminev info on elektrooniliselt kättesaadav. Suurtele ja kõige olulisematele (TENT-T võrgustikku kuuluvatele) sadamatele on väga hea ligipääs. Küll aga ei saa seda öelda paljude teiste sadamate kohta, kus laevateed vajavad kaasajastamist. Mõõdistustööde pakkujaid on piisavalt, aga kuna tööde maht on suur, siis on järjekorrad pikad. Eesti sadamate sissesõiduteed ja üldkasutatavad veeteed peavad olema rekonstrueeritud ja vastama piirkonnas liikuvate aluste vajadustele. Avaliku teenuse pakkumiseks kasutatavate siseriiklike laevateede rekonstrueerimine ja hooldustööd peavad olema regulaarsed (sarnaselt maanteede hooldusele). Avaliku liiniveo korraldamiseks kasutatavate siseriiklike veeteede rekonstrueerimine, hooldamine ja nendel veeteedel vajalikud navigatsioonimärgistusega seotud kulude katmine sadamate akvatooriumite vahelisel merealal tagatakse riiklikult. 28 Lahendus: Tegevus Täitja ja kaastäitjad Vajab/ei vaja rahalist ressurssi Veeteetaristu hoiukava koostamine ja MKM, Jah rahastamise täitmise korraldamine Keskkonnaministeerium (laevateede ja kanalite seire ja hooldus, (KeM) hüdrograafiline mõõdistamine, navigatsioonimärgistuse tagamine, navigatsiooniteabe koostamine ja avaldamine, jäämurde teenuse tagamine sadamatesee) Analüüsida siseriiklike laevateede vastavust MKM Ei liikluskoormusele ja liiklevatele alustele, eriti just avalikele teenustele sh laevateede prioritiseerimise analüüsi koostamine. Üha rohkem lisandub merele konkureerivaid tegevusi ja seega on siseriiklikult oluliste laevateede või marsruutide prioritiseerimine vajalik, et uued valdkonnad (nt kalakasvatuste arendajad) oskaksid meretranspordi vajadustega arvestada. Vajab täpsemat analüüsi liikluskoormuste, suundade jms võtmes. Sisevete pargase ehitus MKM Jah Multifunktsionaalne poilaev MKM Jah AIS võrgustiku loomine sisevetele MKM Jah Eesti värava süvendamine – kanalis on MKM Jah tagatud projekteeritud sügavused ning kanalit hooldatakse regulaarselt. Praaga kanal - kanalis on tagatud MKM Jah projekteeritud sügavused ning kanalit hooldatakse regulaarselt. Rukki kanali laiendamine - kanali laiendamist MKM Jah moreeni leviku piirkonnas, et võimaldada laevaliikluse hajutamine kanali telgjoone suhtes. See vähendaks laeva sõukruvidest tekkivat turbulentsi, mis kulutab kanali servi ja seega vähendaks kitsa kuhjevalli tekkimise kiirust kanali keskel. Madala süvisega mõõdistuslaeva ehitamine MKM Jah Navigatsiooniteabe kogumine, töötlemine, edastamine Navigatsioonimärgistuse edasiarendamine Eesti merealadest on mõõdistatud u 60%. Positiivse näitena võib välja tuua rakenduse „Nutimeri“, mis ühe arendusena võiks kuvada kaardil ka kasutaja asukoha, mis oleks kasulik eelkõige väikelaevnikule, kel puudub tasuline kaardirakendus. 29 Samuti on heal tasemel operatiivne mereohutuse teabe kättesaadavus. Eesti veed on kaetud navigatsioonikaartidega (paberkaardid, elektronkaardid, Nutimeri rakendus). Navigatsiooniteabe edastamine on operatiivne ja võimalik mitme erineva kanali (VTS, RIKS, VA) kaudu. Navigatsioonihoiatuste portaal on välja arendatud ja toimib. Navigatsioonimärgistuse paigutamisel eelkõige sadamate juures tuleb analüüsida majanduslikku otstarbekust vs ohutust. Samuti puudutab see sadamate lähistel üldkasutatavatel veeteedel olevat märgistust. Oluline ja meresõitjatele ohutuse tagamisel kasulik, oleks ka mere hetke ilmainfo kättesaadavus ühest usaldusväärsest allikast. Eesti geograafilisest asendist tingitud pikk ja liigendatud rannajoon, arvukad saared, suur hulk madalaid ja veealuseid karisid ning nende lähedal paiknevad aktiivse kasutusega rahvusvahelised laevateed tingivad vajaduse erinevat liiki navigatsioonimärgistuse järele. Meresõiduohutuse tagamise seisukohast vaadatuna muudab olukorra keerukamaks kogu Eesti rannajoont kattev sadamatevõrk ning territoriaalmere piirijoonega väga lähedal olevad ning Liivi lahel territoriaalmerd lõikavad rahvusvahelised laevateed. Rannikul paiknevad püsimärgid teenindavad lisaks Eesti sadamatesse suunduvale ka rahvusvahelist liiklust. Seetõttu, erinevalt mõnest teisest riigist, peab Eestis navigatsioonimärgistus katma kogu rannajoone ja lisaks sellele ka märkimisväärse mereala. Eesti rannikul ja rannikuvetes asub arvukalt navigatsioonimärke. 2018. aasta detsembri seisuga on Veeteede Ametil 805 navigatsioonimärki, millest 41 on tuletornid, 81 tulepaagid, 11 päevamärgid, 153 poid ja ligikaudu 484 toodrid. Võrdluseks, naaberriigil Lätil on kokku 302 navigatsioonimärki ja Leedul 96. Niivõrd väikese arvu navigatsioonimärkidega saadakse hakkama, kuna mainitud riikide merepiir on Eesti omast lühem, samuti puuduvad saared ning ka sadamate arv on tunduvalt väiksem. Samas, meie merepiirist kordades pikema ja märkimisväärselt keerukama merealaga Soome veed on tähistatud 25 000 erinevat liiki navigatsioonimärgiga. Hoolimata kaasaegsest navigatsioonitehnoloogiast ei ole visuaalsed püsimärgid oma rolli kaotanud ning nad toimivad jätkuvalt peamiste navigatsiooniohutust tagavate vahenditena. Navigatsiooniks keerulistes piirkondades (kitsustes, madalate läheduses, sadamate sissesõiduteedel) ei ole visuaalsetele püsimärkidele alternatiive. Eraldi sihtrühma, mis kiiresti kasvab, kuuluvad väikelaevad, mille sõidupiirkond on erinevalt suurtest laevadest rannikumeri. Kasvav väikelaevaliiklus toob kaasa kindla vajaduse navigatsioonimärgistuse valdkonna edasiarendamiseks. Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Võimaldada navigatsiooniteabe jõudmist MKM Jah rahvusvahelistesse kaardirakendustesse vähem kui kolme kuuga. Elektronkaartide puhul kolme päevaga. Laiendada nuti-poide võrku MKM, Jah Meresüsteemide Instituut (EMI) Töötada välja nutirakendus – virtuaalpoi MKM, EMI, Jah – saab kasutada erinevateks uuringuteks Haridus- ja Teadusministeerium (HTM) 30  Mere ilmainfo (lained, hoovused, MKM, KeM Jah veetase) koondamine parema teenuse pakkumiseks laevandusele (avameri+sadamad rahvusvahelistes sadamates ja riiklikult olulistes sadamates) Sadamate navigatsiooniinfo operatiivsest MKM Jah IT-allikast sh. operatiivne kontakt varjusadama vajaduse korral. Otsingu- ja päästevaldkonna parandamine Siseturvalisuse arengukavas 2020-2030 on kaardistatud valdkondlikud probleemid ning võimalikud lahendused, milleks on:  merealadel ja piiriveekogudel teostatakse pidevat reostusseiret;  suurendatud on mere- ja lennupääste ning reostusseire- ja tõrje suutlikkust;  laiendatud on ühisvalveteenistuste võimalusi;  tagatud on keemiaõnnetuste lahendamise suutlikkus merealadel;  tagatud on valmisolek reageerida mass(pääste) õnnetustele;  päästetöödeks on tagatud nüüdisaegne tehnika ja varustus. Lisaks tuleks kiirendada merepäästesündmustele abi väljasaatmist ja parendada sündmuste lahendamise juhtimist, tõsta vabatahtliku merepääste võimekust ning tagada vabatahtlike merepäästjate suurem toetamine. Ühtlasi haakub selle teemaga mereseire taristu uuendamine ja radarite väljavahetamine ning Politsei- ja Piirivalveameti laevastiku ja merelise ressursi tugevdamine. Üheks probleemiks on päästesündmustele reageerivate üksuste veesõidukite veeskamise võimalus väikesadamates. Viimastel aastatel on suurenenud Eestis nii veesõidukite arv kui laevaliikluse intensiivsus Läänemerel. Lisaks eeldab prioriteedi 1 eesmärkide 2 „Kaubavood Eesti sadamate kaudu on suurenenud“ ja 3 „Reisijate arv rahvusvahelistel laevaliinidel on suurenenud“ saavutamine olemasoleva laevaliikluse tihenemist, mis omakorda toob kaasa suurema tõenäosuse merereostuse tekkeks. Mereside tõhustamine Eesti omab kaasaegset mereside võrku, millega tagatakse Eesti territoriaalvetes ja merepääste vastutusalas pidev GMDSSi vastav katvus. Mereturvalisuse eest vastutavad ametkonnad kasutavad seda võimalust ega ole arendanud või arendamas oma lokaalseid võrke. Politsei- ja Piirivalveamet (PPA) ja Veeteede Amet (VA) VTS kasutavad riigi ametkondade vahelist Riigi Infokommunikatsiooni SA (RIKS) mereside võrku nii merepääste ülesannete kui ka laevaliikluse juhtimise korraldamiseks. Viimane funktsioon toimib hetkel küll Tallinna ja Muuga lahel, kuid arvestades RIKS mereside võrgu ressurssi ja võimalusi, saaks laiendada ka teistesse Eesti sadamate ja laevaliikluse sõlmpunktidesse minimaalse lisainvesteeringuga. 31 Päevakorras on AIS integreerimine ühtsesse mereside võrku olemasoleva taristu baasil. NAVTEX informatsiooni sisend saadetakse Rootsi mereadministratsioonist otse Tallinn Raadiole kuus korda ööpäevas, st 24/7/365 edastatakse MSI teateid. Tõhus ja pidev infovahetus aitab tagada turvalisema keskkonna, selleks on oluline sadamate ja Veeteede Ameti veelgi tõhusam koostöö hüdrograafia, kartograafia, navigatsioonimärgistuse, ka lootsimise ja VTS valdkondades. Vastavalt ITU RR App18 on VHF kõnekanalite arv oluliselt vähenenud (kõnekanaleid on eraldatud andmeside jaoks). On loonud olukorra, kus kõnekanaleid on puudu. Teiseks oluliseks riskikohaks on analoogside mõjutaud raadiohäiretest uute (digi)tehnoloogiate poolt, mis sadamates ja laevadel kasutusele on võetud. Seepärast ollakse välja arendamas VHF analoogside kõnekanalite üleminekut digitaalseks, mille juures Eesti on suunanäitajaks teistele (vastavad tööd puudutavad nii teadustöö arenguid, innovaatilisust, ohutut meresõitu jne). Riiklik mereseire ehk mereolukorra teadlikkuse näol on tegemist valitsemisalade ülese funktsiooniga, mille saavutamine eeldab erinevate mereolukorra teadlikkusse panustavate valitsemisalade ja asutuste omavahelist integreeritud koostööd riigi julgeolekupoliitiliste eesmärkide saavutamiseks merekeskkonnas. Vabatahtlikud merepäästjad aitavad tagada ohutust ja turvalisust ning seeläbi hoiavad ühtlasi atraktiivsena ka rannaäärset elu. Vabatahtlike merepäästjate reageerimispunktidega on kaetud üldjoontes kogu Eesti rannik ning piiriveekogude kaldad. Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Tegevused riikliku merepääste ning SiM Jah vabatahtlike merepäästeseltside arendamiseks, mh piirkonnaspetsiifiliste päästevahendite soetamiseks Võtta kasutusele uued tehnoloogiad SiM, KeM, Jah otsingu- ja päästetöödeks, MKM merereostusseireks ja mereseireks – droonid, iselaevad, tarkade poide võrk, navigatsioonimärgistuse kasutamine mereseireks. Sideühenduste väljatöötamine lähtudes SiM, MKM Jah tuleviku tehnoloogilistest KeM arendusvajadustest (nutipoid, iselaevad, väikelaevanduse vajadus) Sadamate ohutuse ja turvalisuse tagamine Tulemusnäitaja: intsidentide ja õnnetuste arv on vähenenud. Uute sadamate planeerimisel tuleb lähtuda atmosfääriõhu kaitse seadusest ja tagada välisõhus leviva müra normtasemed. 32 Sadamate süvendustööd on otseselt seotud laevaliikluse ohutuse tagamisega. Tuleks kaaluda hooajaliste keskkonnapiirangute leevendamist tiheda laevaliiklusega akvatooriumil sadamasisesele süvendustööle. Süvendustöid tehakse enamus sadamates, mitmed sadamad paiknevad lähestikku. Süvenduspinnase kaadamise koht peab olema sadamale või lähedal paiknevate sadamate grupile mõistlikul kaugusel. Sadamad, eriti regulaarse kauba ja/või reisiliiklusega sadamad on turvaliselt kaitstud ekstreemsete ilmastikutingimuste korral, et tagada laevade ohutu sildumine ja seismine sadamas. Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Kaaluda süvendustööde piirangute KeM, MKM Ei leevendamist tihedaliiklusega sadamates Rannikuvetes laeva liikumiskiiruste MKM, KeM Ei reguleerimise õigus KOVile või muule pädevale asutusele või üleüldine piirangu kehtestamine Laevade tehnilise järelevalve ja klassifitseerimise tõhustamine Tulemusnäitaja: Eesti on Pariisi MoU valges nimekirjas Laevade tehniline järelevalve on reguleeritud meresõiduohutuse seadusega. Järelevalve ülesanded on jagatud VA ja volitatud klassifikatsiooniühingute vahel. Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Merendusalaste konventsioonide MKM, KeM, Jah tõlkimine eesti keelde SoM Piisava hulga järelevalveinspektorite MKM, KeM Jah pidev järelkasvu planeerimine ja koolitamine Analüüsida, kas Eestis on vajadus MKM Jah tunnustada Rahvusvahelise Klassifikatsiooniühingute Assotsiatsiooni (IACS) kõiki ühinguid Veesõidukite registrite ja info MKM, MeM Jah ühtlustamine ja konsolideerimine Merepääste võimekuse paiknemine (riigi SiM, MKM Jah poolt katmata alad, asukohad). Riskialade määratlemine, siduda prioritiseeritud sadamate võrgustikuga, sh vabatahtlike tegevusega Avaliku sektori võimekuse suurendamine merekeskkonnakaitset planeerida, keskkonnareostusi ära hoida ja nende tagajärgi leevendada 33 Tulemusnäitaja: On tagatud ametkondade vaheline tõhus koostöö merekeskkonna kaitsel ning merealaste uuringute tulemuste arvestamine merekeskkonna kaitse kavandamisel. Tagamaks HELCOM soovituste täitmist ning riigi võimekust reageerida merereostuse õnnetustele minimeerimaks kahjusid merekeskkonnale ja ka rannikule on mõistlik kaaluda võimalust lisada igale soetatavale riigi laevale merereostuse avastamiseks ning likvideerimiseks vajalik tehnika. Läänemeri on maailma üks intensiivsema laevaliiklusega piirkondi, idakalda sadamate tõttu on kasvanud pidevalt ka naftasaaduste vedu. Aastas veetakse kuni 150 miljonit tonni naftaprodukte, kümneid miljoneid tonne kemikaale. Naftatankerite liiklus on tihe Soome lahe keskosas, kus lastita tankerid liiguvad Venemaa sadamatesse (Primorsk, Ust Luga) ja Venemaalt suunduvad täislastis tankerid Euroopa sadamatesse väljapoole Läänemerd. Navigatsioonipiirkonna muudavad selle ohtlikuks arvukad madalikud ja karid. Oma geograafiliste iseärasuste tõttu on Läänemeri vähese veevahetusega (madal ja suletud) meri, mistõttu on laevaõnnetusega kaasneva merereostuse mõju Läänemere keskkonnale oluliselt drastilisemate tagajärgedega kui see oleks mujal. Kõige ohtlikumateks kohtadeks peetakse Läänemerel laevateede ristumiskohtasid, kus on tõenäosus suuremateks laevaõnnetusteks, mis puudutavad kahte või enamat laeva. Eesti piirkonnas toimub kõige aktiivsem mereliiklus toimub Tallinna ja Helsingi vahelisel alal, kus ristuvad intensiivse liiklusega põhja-lõunasuunalised reisilaevade teed ida-läänesuunaliste tankerite ja kaubalaevade teedega. See on koht, kus ilmastikutingimuste või inimliku eksituse tõttu võivad toimuda laevade kokkupõrked, mille tulemuseks võib olla ulatuslik merekeskkonna reostus või kannatanute- ning ka ohvriterohke laevaõnnetus. Kõige tõenäolisem ja suurim: • potentsiaalne merereostuse risk on 150 000 tonnise tankeri kahe küljetanki lekkimine nende kokkupõrge. • kompleksõnnetus on võimalik reisilaeva/kruiisilaeva ja tankeri vahel, kus korraga tekkib vajadus päästa tuhandeid inimelusid ning hoida ära tankeri lekkimisel tekkiv merekeskkonna reostus (s.h võib õnnetusega kaasneda plahvatus, kemikaalide leke jms). Oluline on õnnetuste puhul nüanss, et kõige kiiremini valgub reostus laiali lekke esimestel tundidel ja tugevamate tuulte korral. Läänemerre sattunud naftareostus jõuab rannaalale keskmiselt kolme ööpäeva jooksul. HELCOM soovitustest lähtuvalt peab reostustõrjelaev õnnetuspaika jõudma kuue (6) tunni jooksul ja alustama täiemahulise reostustõrje operatsiooniga 12 tunni vältel alates teate saamisest. Avamere reostustõrjevõimekuse miinimumsoovituse tase on 4,5 ruutkilomeetrit 24 tunni jooksul (4,5 km²/24 h). Ühe laeva merereostusõnnetustele reageerimise suutlikkuse merel on 0,6 km²/24 h. Reostusseiret õhust tuleb teostada vähemalt kolmel (3) korral nädalas (neist üks lend hämaras, pimedal ajal). Riigil peab olema olemas teatud hulk erinevaid poome ja skimmereid jne. Merereostuse likvideerimist peetakse edukaks, kui seda suudetakse teha esimese 36 tunni jooksul ja välditakse reostuse kandumist randa, kus selle koristamine on töömahukam ja aeganõudvam. 34 Politsei- ja Piirivalveametil on merereostuse likvideerimise võimekusega laevad PVL-101 „Kindral Kurvits“ (hangitud EL Regionaalarengufondi vahenditest, võetud kasutusse 2012. aastal) ja PVL-203 „Raju“ (hangitud EL Ühtekuuluvusfondi vahenditest, võetud kasutusse 2018. aastal), merereostustõrjekonteinerid, erinevad poomid (meri ja piiriveekogud), skimmerid jne. Lisaks Politsei- ja Piirivalveameti merereostuse likvideerimise võimekusega laevadele on vastava võimekusega laevad olemas ka Veeteede Ametil. Nendeks on ning EVA 316 ja Sektori, millest viimane on Soomest prahitud (leping kehtib aastani 2023). Seega on Eesti Vabariigi võimekus kokku 2,4 km²/24 h ehk ligikaudu pool HELCOM-i avamere reostustõrjevõimekuse miinimumsoovituse tasemest 4,5 ruutkilomeetrit 24 tunni jooksul (4,5 km²/24 h). Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Riskialade kaardistamine sõltuvalt MKM, KeM Ei ohu tüübist Riigi ja erasektori koostöö MKM, KeM, SiM Ei reostustõrje ressursside kasutamisel (riskialade kaardistamine) Regulaarliinide varustamine MKM, KeM, SiM Jah reostusseire vahenditega ja info süsteemne kogumine ja analüüs – integreerimine Copernicusega Seirepoide võrgu laiendamine MKM, KeM,SiM Jah Teadlikkuse tõstmine merekasutajate Ministeeriumid Jah hulgas 2.2.3 PRIORITEET 3 – Avaliku sektori tegevused toetavad merenduse arengut Tulemusnäitaja: arengukava tegevused on õigeaegselt ellu viidud 100% Avalik sektor peab tagama soodsa keskkonna merendussektoris tegutsevatele ettevõtetele, kolmanda sektori institutsioonidele ja inimestele. Keskkond tähendab antud kontekstis nii õiguslikku baasi, avalikult kasutatavat taristut kui ka avaliku sektori pakutavaid teenuseid. Teiseks on avalikul sektoril oluline roll merendusklastri arengueelduste loomisel tegevuste ja toetamise, sh rahvusvahelistes organisatsioonides osalemise kaudu. Seda alates konkreetsetest sektorit toetavatest projektidest, nt merenduse kompetentsikeskus, kuni kaudsemate tegevusteni, mis võimaldavad sektoril infot ja kogemusi vahetada. Avaliku sektori tegevused peavad olema eesmärgipärased, efektiivsed ja toetama sektori tegevusi ning koostööd . Avaliku sektori esmaseks ülesandeks on piisava ja efektiivse õigusliku baasi, avalike teenuste rahastamise ning merenduse arengut toetava juhtimisstruktuuri tagamine. Seadused ja teised õigusaktid peavad ühest küljest võimaldama ettevõtetel ja teistel merendussektori osalistel efektiivselt ja rahvusvahelisel turul konkurentsivõimeliselt tegutseda ning teisest küljest tagama vaba konkurentsi turul ning ohutuse, turvalisuse ja keskkonnaalaste nõuete täitmise. Praegune seadusandlik baas ei ole aga piisav eelnevalt välja toodud eesmärkide täitmiseks. Tulenevalt 35 merenduse rahvusvahelisest iseloomust on avalikul sektoril täita mitmeid rolle, mida erasektor enda peale ei saa võtta. Olulisemad nendest on nt rahvusvahelistes organisatsioonides osalemine ning avalike teenuste osutamine. Selle ülesande täitmine eeldab piisavat kompetentsi ning toimivat juhtimisstruktuuri, et erinevate ministeeriumide haldusalas olevad küsimused ei killustuks ning avalikul sektoril oleks tervikuna ühtne nägemus merenduse arenguvajadustest ja -võimalustest. Merendusega tegelemine on jaotatud praktiliselt kõikide ministeeriumide vahel. Kuigi see tekitab kohati probleeme, on tegu paratamatusega, kuna merenduses saavad kokku erinevate ministeeriumide hallatavad teemad. Eesti on mitmete rahvusvaheliste organisatsioonide liige ning osaleb erinevate foorumite töös. Põhitähelepanu on koondunud Läänemerega seotud teemadele, sealhulgas eriti meresõiduohutus, merekeskkond, meretranspordi konkurentsivõime jne. Suurima osa avaliku sektori töömahust moodustab osalemine Euroopa Komisjoni komiteedes/ekspertgruppides ning Euroopa Liidu Nõukogu töögruppides ja seal Eesti seisukohtade esindamine. Läänemere piirkonna merekeskkonna kaitse komisjoni (HELCOM) peamiseks eesmärgiks on kaitsta Läänemere piirkonna merekeskkonda kõikidest reostusallikatest pärineva reostuse eest ning taastada ja kaitsta tema ökoloogilist tasakaalu. HELCOM on Läänemere piirkonna merekeskkonna kaitse alase poliitika kujundaja, töötades välja ühiseid keskkonnakaitse eesmärke ja tegevusi. Helsingi Komisjon on nii järelevalveorgan kui ka koordineeriv keskus, võttes arvesse Läänemere piirkonnale omaseid keskkonna, sotsiaalseid ja majanduslikke tingimusi. Väga oluline organisatsioon on Rahvusvaheline Mereorganisatsioon (IMO), mille liige Eesti on alates 31. jaanuarist 1992 ning mille tööst võtavad vastavalt kokkuleppele osa nii Majandus- ja Kommunikatsiooniministeerium, Veeteede Amet, Riigi Infokommunikatsiooni Sihtasutus, Politsei- ja Piirivalve Amet, Keskkonnaministeerium, kui ka Tarbijakaitse- ja Tehnilise Järelevalve Amet. Kuna rahvusvaheline kaubavedu ja merendus on tihedalt seotud, siis on merenduse arengu seisukohalt oluline välispoliitilisel tasemel selliste rahvusvaheliste suhete loomine, mis soodustaksid kaubavedu Eesti transpordikoridoride kaudu. See tähendab vastastikuste kohtumiste ja kokkulepete teel heade kontaktide loomist ning hoidmist meie põhiliste ja potentsiaalsete partnerriikidega. Eesti ametnike arv on küll võrreldes teiste riikidega väike, aga see ei ole olnud takistuseks efektiivselt tööülesandeid täites. IMO komiteede istungite ja assamblee eel ning ajal toimub nii Brüsselis kui ka IMO peakorteris Londonis tihe ELi liikmesriikide vaheline seisukohtade koordineerimine, eesmärgiga suunata ühise jõuna IMO tegevust. Lisaks IMOle on ka teine rahvusvaheline organisatsioon, mille liikmesriik Eesti on aastast 1992 – Rahvusvaheline Telekommunikatsiooni Liit (ITU), seal luuakse mereside jaoks oluline regulatsioon. Lisaks Euroopa ning ka Läänemere – CEPT regulatsioon, milles Eesti osaleb (hetkel juhib mereside teemadega seonduvat projektrühma). Eesti kuulub samuti Rahvusvaheline Tööorganisatsiooni (ILO) liikmesriikide hulka, merenduse valdkonna jaoks on oluliseim ILO meretöö konventsioon. Tööinspektsioonile kaasneb sellega järelevalve funktsioon töötervishoiu, tööohutuse ja töösuhete nõuete täitmise üle (laevadel, sadamates, laevaehituses jne). Lahendus: 36 Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Terviklik mereõiguse revisjon kõigis MKM Jah valdkondades ja kaasaegne õigussüsteem Valdkondliku juhtimise tõhustamine MKM Jah Keskkonnalaste nõuetele vastavuse MKM, KeM Jah tagamiseks võimalikud riiklikud toetusfondid Merenduse korraldamise ülesannete Ministeeriumid Ei fikseerimine ministeeriumide ja ametite vahel (konventsioonide täitmise ja järelevalve jaotus) ja vajadusel seadusemuudatuste tegemine. Ühise merenduse juhtrühma moodustamine 37 2.2.4 PRIORITEET 4 – Eesti merendusharidus ning teadus- ja arendustegevus on kaasaegsel tasemel Mõjunäitajad: 1) Tööturu pakkumine on tasakaalus nõudlusega 2) Õppetööd läbiviivate töötajate vanuseline proportsioon ning omandatud kvalifikatsioon toetavad valdkonna õpetamise jätkusuutlikkuse säilimist ning kvaliteedi tagamist Eestis antakse merendusharidust kõikidel tasemetel. Riigi ja ülikoolide ning erasektori vahel on hea koostöö. Käesolevast sügisest käivitus Tallinna Tehnikaülikooli mehhanotehnika doktoriõppes merenduse peaeriala. Tööjõu vananemine, erialaspetsialistide ja oskustööjõu puudus ning kalanduse valdkonna vähene atraktiivsus noorte hulgas, vajab sektori jätkusuutlikkuse tagamiseks terviklikku käsitlust: valdkonna positiivse kuvandi loomist, tõhusamat koostööd teadus- ja haridusasutuste, ettevõtete ja administratsiooni vahel õppekavade kaasajastamisel ja täiendusõppe korraldamisel, vajalik erialaspetsialistide koolitamisel ning konsulentide nõuande tagamisel. Kalandusharidust käsitletakse ühe osana merendusharidusest. Eesti haridusasutused peaksid pöörama rohkem tähelepanu hüdrotehniliste, veeteede ja sadamate ehituseks vajalike insener-tehniliste erialade õpetamisele ja praktikale, samuti tuleb jätkuvalt enam tähelepanu pöörata Läänemere keskkonnaalasele seisukorrale ja tegeleda uurimis- ja arendustegevusega, mis toetavad mereliste taastuvressursside kasutamist energeetikas ja keskkonnateadustes. Tulevik on seotud autonoomsete laevadega, ka Eesti peaks siinkohal pöörama antud valdkonnale enam tähelepanu. Rahvusvahelise teaduskoostöö roll ja selles osalemine on valdkonna arenemisel väga oluline. Defitsiidiks on kujunenud spetsialistid, kes oskavad töötada sadamas kaasaegse laadimistehnikaga. Töötamine sadama laadimistehnikaga vajab sadamatöö eripära ja ka üldisemat laeva konstruktsiooni tundmist. Samuti on laevaehituse ja remondi osas alaline kvalifitseeritud tööjõu puudus. Väikelaeva ehitussektoris on väljakutseks tootearendusvõimekus, uute tehnoloogiate rakendamine tootmises ja tõhus koostöö teadusasutustega. Kahanevad tööjõukulude ja kasvavad keskkonnanõuded tingivad vajaduse senisest enam panustada innovatsiooni ja tootearendusse ja turundusse. Eesti mastaabi puhul saab tulemusi saavutada vaid tehes koostööd, sh. teadusasutustega. Ettevõtetele peavad teadmus- ja tootearendusteenused ning kvalifitseeritud tööjõud olema võimalikult kättesaadavad. Eesmärk on, et meretööstus oleks populaarne karjäärivalik ja tööjõud on pädev. Juunis 2020. a kinnitati SCC meretehnoloogia ja hüdrodünaamika teadustaristu ja –teenuste arendamise projekt Vabariigi Valitsuse korraldusel riikliku tähtsusega teadustaristute investeeringute kavasse. Investeeringute eesmärk on arendada välja meretehnoloogia ja hüdrodünaamikaga seotud teadusvaldkondadele vajalik eksperimentaaluuringute taristu, mis soodustab meretehnoloogiaga seotud erinevate teadusvaldkondade ülest koostööd ja Eesti vastava valdkonnaga seotud teaduse interdistsiplinaarset rakendamist, suurendades Eesti teadus- ja arendustegevuse konkurentsivõimet rahvusvahelisel tasandil. Samuti on puudus nö 38 „nutikast tööjõust“ meretööstuses, mistõttu digipädevusi tuleb tõsta muutes läbivalt ka koolitusprogrammi, sh täiendkoolitustes. Eesmärk – Eesti merendusharidus ning teadus- ja arendustegevus on kaasaegsel tasemel. Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Sadamatehnika õppesuuna loomine Eesti HTM, Jah Merekooli ja sadamapraktika osakaalu MKM suurendamine Merendus peab olema erinevates Teadus- ja HTM, Ei Arendustegevuse (T&A) rahastusmeetmetes MKM enam välja toodud T&A toetamine merendusega seotud HTM, Jah valdkondades: MKM, Laevanduse ja meretransport MeM, Okeanograafia ja meteoroloogia KeM Kalandus Laevaehitus Meretehnika Keskkond Merendushariduse parem koordineeritus ja HTM Ei teadustöö parem sidusus majandusega ning koostöö ettevõtetega Nutikad spetsialiseerumised HTM, Jah MKM Konkurentsipõhisel T&A rahastamisel HTM, Ei merendusele spetsiaalsed meetmed MKM, KeM Perioodiline merendussektori tööjõuvajaduse MKM, Jah uuring (näiteks iga kolme aasta tagant) mh. SoM, sisaldab maakondlikku mõõdet, mis aitaks HTM, prognoosida vastavat tööjõuvajadust piirkonniti. MeM Eesmärk: Eestis antav mereharidus kindlustab kõigile merendussektori valdkondadele vajalike spetsialistide kaasaegse õppe tasakaalustatud mahus Eestis on süsteemne merealane kutse- ja kõrgharidus – Eesti Merekool ja Taltech Eesti Mereakadeemia. Merendusharidus on kättesaadav ja kvaliteetne ning tagab elukutse. Suurimaks väljakutseks on uute põlvkondade pealetulek, kelle jaoks merendusharidus ei ole esimene valik, samuti lektorite järelkasvu tagamine. Merendusharidust tuleb propageerida laiemalt eesmärgiga, et lisanduks õppijaid. Eesti merendussektoris on kvaliteetse tööjõu puudus. Merendussektoris on tööjõu värbamisel väga oluline roll ka maksurežiimil, mis peab olema teiste riikidega konkurentsivõimeline. 39 Lahendus: Tegevus Täitja ja Vajab/ei vaja rahalist kaastäitjad ressurssi Merendussektorit toetav õigusruum ja poliitika MKM, Ei ning pikaajaline vaade RaM, KeM Analüüsida meremeeste täiendõppe RaM, Jah maksustamise võimalust 0% käibemaksuga või MKM käibemaksuvabastuse kehtestamist Probleemide põhjalik kaardistamine – MKM, Ei tulevikutrendid ja dubleerimise vähendamine HTM, KeM Üldhariduskoolide/huvitegevuse ärakasutamine HTM, Jah merenduse propageerimiseks (koostöö MKM, õppeasutustega). MTÜ Noored Merele, MeM Meresõber, läbi Kalanduse Teabekeskuse eri tegevused kalanduse propageerimiseks, mis on seotud lastega – kalandustundidest üldhariduskoolides, kala-aabitsa väljaandmisest lasteaedade viimases rühmas kuni kalalaagriteni jms Olemasolevate õppekavade kohandamine, MKM, Ei lähtudes sektori vajadustest ja õpetamiseks HTM, vajaliku infrastruktuuri arendamine MeM Merenduse valdkonna laiaulatuslik üleriigiline HTM, Jah turundamine MKM Teadus- ja arendustegevuse suurem integreeritus HTM Ei mereharidusse Kutse- ja kõrghariduse ladus koostöö ja HTM, Ei ühtlustamine integratsiooni asemel MKM Merenduse algharidus põhihariduse tasemele HTM, Jah valikainena ja jätkuv merendushariduse MKM populariseerimine Olemasoleva praktikabaasi tõhusam kasutus HTM, Jah (laevad, sadamad, ettevõtted, ametid) MKM 40 2.2.5 PRIORITEET 5 – Rannaäärne elu-ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut, merekultuuripärandit kantakse edasi. Tulemusnäitaja:  Eesti sadamaid külastanud väikelaevade arv aastal 2035 on 25000 (VA andmete põhjal 2019. aastal u 15000).  Aastaks 2035 on Eestis toimiv väikesadamate võrgustik koos ühtlaste kaasaegsete teenustega, mis põhinevad merekultuuril.  Püsiasustusega väikesaartega ühenduse pidamiseks vajalikud veeteed ja sadamad võimaldavad ühenduse pidamist saartega, sealhulgas vajalikus mahus kaupade, ehitusmaterjalide ja masinate vedu, samuti aluste turvalist hoidmist sadamates ebasoodsate ilmastikutingimuste ajal.  Tuletornid on renoveeritud vastavalt tuletornide renoveerimise kavale. Eesmärk: Merekultuuripärandi ja –traditsioonide säilimine on tagatud Merekultuuripärandi ja -traditsioonide säilimisele aitab kaasa asjaolu, et Eestil on silmapaistev toimiv ja arenev väikelaevaehituse sektor. Suures osas on välja ehitatud väikesadamate võrgustik. On loodud jätkusuutlikud merekultuuripärandil põhinevad üritused ja kohalikel on huvi neid korraldada. Eestis on veel mingil määral säilinud elav merepärimus. Meremuuseumid on heal tasemel – nii riiklikud kui ka erakätes olevad. Digiarhiivid toimivad ja andmekogusid täiendatakse pidevalt. Mõnedes rannikuäärsetes paikades toimivad merispordi- ja päästeseltsid. Kõik rannad (kallasrajad) on rahvale avatud. On näha, et viimastel aastatel kolivad inimesed tagasi rannaküladesse. Merekultuur ja traditsioonide väärtustamine on taastumas, millele on kaasa aidanud suuresti mitmed riiklikud toetavad meetmed. Suurimateks väljakutseteks on põlvkondade vahetusest tuleneva jätkusuutlikkuse tagamine. Sadamateenuste kvaliteet on piirkonniti ebaühtlane. Tuleks pakkuda terviklikku lähenemist – piirist-piirini mööda rannajoont. Raske on leida tasakaalu meremajanduse ja turismi vahel. Merekultuur on suuresti üles ehitatud turismile ja tahaplaanile on jäänud autentne rannakultuur ja selle säilimine. Tuleb leida tasakaal meremajanduse, turismi ning kinnisvaraarenduste vahel. Areneb väikesadamate võrgustik: korrastatakse vanu sadamaid ja ehitatakse ka päris uusi. Looduslikult ebasoodne sadamakoht tähendab eelkõige suuri kulusid (nt korduvsüvenduse vajadus soovitud sügavuse säilitamiseks, vajadus ohtrama navigatsioonimärgistuse järele vms). Uute väikesadamate rajamine ja olemasolevate rekonstrueerimine on otseselt sõltuv sobivate toetusprogrammide olemasolust, mille abil valdav osa suuremahulistest investeeringutest tehakse. Väikesadamate võrgustiku kontseptsiooni kehtivusaeg saab läbi 2020. aastal. Enne uue koostamist, on esmalt vaja kaardistada hetkeseis väikesadamates, teha korda sadamaregister, vaadata üle sadamate liigitus. Analüüsi põhjal tuleb väikesadamate funktsionaalsus, kasutajagruppide ja koostöövõrgustike määratlemine järgmiseks perioodiks kindlaks määrata. Väikesadamate võrgustiku investeeringute ja ülalpidamispõhimõtted vajavad samuti analüüsi. Turismi eesmärgil vajavad väikesadamad kvaliteetset teavitus- ja turundustööpõhimõtteid ja toetusvõimalusi. Mereturismi arenguks on oluline parendada väikesadamate andmebaaside kvaliteeti (põhistatus edasiste otsuste tegemiseks) ja viia sadama teenused vastavusse 41 konkurentidega. Oluline on ka kogukonna ja sihtkoha arendusega tegelevate organisatsioonide koostöö ning terviklik klienditeekond. Mereturismi ja merenduse ning randlusega seotud ettevõtluse arendamisel on oluline, et rannaäärse elu- ja külastuskeskkonna, samuti reisijateveoks kasutatava meretranspordi ja selle teenindamiseks kasutatava keskkonna kujundamisel ja arendamisel arvestataks ka erivajadustega inimeste vajadustega, et tagada neile ligipääs turismiobjektidele ja meretranspordile. Uute väikesadamate arendamisel on oluline pöörata tähelepanu ohutuse ja turvalisuse tagamisele ning juurdepääsuteede võrgustiku rajamisele vastavalt vajaduste analüüsile ja kavale riigieelarve või struktuurifondide vahenditest ja kindlasti sadamakoha looduslike tingimuste sobivust. Laienev väikesadamate võrgustik toob kaasa ka väikelaevade ja väikelaevajuhtide arvu tõusu. Veeteede Ameti andmetel väljastati 2019. aastal 1415 väikelaevajuhi tunnistust. Aktiivseid väikelaevajuhtide koolitajaid oli 26. Uuel perioodil on vaja muuta kliendisõbralikumaks väikelaevajuhtide koolituse eksamikeskkond ja samas ka muuta väikelaevade registreerimise nõuded paindlikumaks, kasutades selleks innovaatilisi lähenemisi, millega on võimalik muuta teenus kliendile mugavamaks ja samas vähendada halduskoormust. Eesti kui mereriigi maine tõstmisele aitaks kaasa väikelaevajuhtide väljaõppe ühtlustamine Euroopas tunnustatud tasemele. Rannakülad ja ajaloolised tuletornid on märkimisväärse turismipotentsiaaliga. Samuti kasvab iga aastaga allveeturismi populaarsus. Tuletorn on olnud läbi sajandite ohutu navigatsiooni sümbol. Kuigi uued kaasaegsetel tehnoloogiatel põhinevad süsteemid leiavad üha rohkem kasutust meresõiduohutuse valdkonnas, ei ole traditsiooniline tuletorn oma rolli kaotanud ka tänapäevases navigatsioonis. Tegemist on unikaalse meremärgiga, mis aitab meresõitjal nii öösel kui päeval hoiduda ohtudest, selle järgi saab määrata asukohta ning sihina paigaldatuna aitavad nad laeval ohutult sadamasse jõuda. Lisaks meresõidu tagamisele on tuletornidel oluline koht ajaloolise merekultuuripärandi tutvustamisel ning mitmed neist on suurt potentsiaali omavad turismimagnetid. Merekultuuripärandi puhul on vaja tegelda rannamajanduse arenduse teaduspõhise planeerimisega. Lahendus: Tegevus Täitja ja kaastäitjad Vajab/ei vaja rahalist ressurssi Väikesadamate võrgustiku edasise tervikliku MKM, RaM, MeM Jah arendamise tegevusplaani loomine (Analüüsi põhjal tuleb väikesadamate funktsionaalsus, kasutajagruppide ja koostöövõrgustike määratlemine järgmiseks perioodiks kindlaks määrata. Et selgitada välja regionaalselt olulisemad sadamad, mille väljaarendamine on prioriteetsem. Kindlasti tuleb siin arvestada ka maakondlikes arengukavades seatud väikesadamate arendamise plaane. 42  Väikesadamate võrgustiku investeeringute ja ülalpidamispõhimõtted vajavad samuti analüüsi. Turismi eesmärgil vajavad väikesadamad kvaliteetset teavitus- ja turundustööpõhimõtteid ja toetusvõimalusi. Mereturismi arenguks on oluline parendada väikesadamate andmebaaside kvaliteeti (põhistatus edasiste otsuste tegemiseks) ja viia sadama teenused vastavusse konkurentidega. Oluline on ka kogukonna ja sihtkoha arendusega tegelevate organisatsioonide koostöö ning terviklik klienditeekond). Sadamate ja nendes pakutavate teenuste MKM, RaM, SoM, Ei toetamise meetmete ülevaatamine erinevate MeM programmide ühildamine ning vastava info koondamine Merepärandi taaselustamine ja säilitamine läbi MKM, Jah erinevate tegevuste, kaaluda spetsiifilisi Kultuuriministeerium sihttoetusi investeeringuteks (ajalooliste (KuM) laevade ehitus, taastamine ja kasutamine kultuurisaadikutena, elava merepärandi hooldus ja tingimuste loomine objektide pikaajaliseks säilitamiseks, teadmiste säilitamine ja levitamine – uurimistööd, infomaterjalid, ürituste ja õppepäevade korraldamine) Mereliikluse ja teeninduskeskkonna ohutuse MKM, KuM Ei tõstmine elavas merekultuuripärandis (ajalooliste laevade liiklemine ja nende teenindus vastab ohutus- ja keskkonnanõuetele, ohutusnõuetest tulenev varustatus ei riku elava merekultuuripärandi ajaloolist ilmet) Merealase teatmekirjanduse süsteemne MKM, KuM Jah koostamine ja väljaandmine Teadlikkuse tõstmine/merendusklassid MKM, HTM Jah Põhjalik ja laiaulatuslik lähteuuring MKM, KuM Jah merekultuuripärandist ja traditsioonidest – järeldused regulatsioonide meetmete ja erisuste osas. Merendusega seotud ehitiste, rajatiste, MKM, KuM Jah „maamärkide“ kaardistamine ja süsteemne taastamine, võimalusel spetsiifilised toetusmeetmed Meremuuseumide kaasamine üldhariduse MKM, HTM Ei õppekavadesse 43 Lisa 1 – Meretranspordipoliitika kaasamisürituste kokkuvõtted KOKKUVÕTE Meretranspordipoliitika 2021-2030 PRIORITEET 1 Eesti merendussektori ettevõtluskeskkond on ettevõtjasõbralik ja rahvusvaheliselt konkurentsivõimeline Töörühma I kohtumine 10.12.2019; MKMis. Osalejad: Madli Kopti (TalTech Eesti Mereakadeemia) Enn Kreem (Eesti Laevaomanike Liit) Tauri Roosipuu (Eesti Laevajuhtide Liit) Villu Vatsfeld (Saarte Liinid AS) Jaan Kalmus (Eesti Laevaomanike Liit) Jüri Lember (Eesti Meremeeste Sõltumatu Ametiühing; Tarmo Kõutsi asendaja Merendusnõukoda) Rivo Uiboupin (Meresüsteemide Instituut) Viktor Palmet (Eesti Sadamate Liit) Jaano-Martin Ots (Eesti Väikesadamate Arenduskeskus, Eesti Vabatahtlik Mere- ja Järvepääste) Indrek Gailan (MKM TAIO) Taivo Linnamägi (MKM LMO) Katrin Andre (MKM LMO) Reet Laos (MKM LMO) Indrek Gailan (Transpordi arengu ja investeeringute osakond) tervitussõnad. On alustatud Taristu ja liikuvuse arengukava (TAK) koostamisega. On olnud kaheksa kaasamisüritust üle Eesti. Kuna suures TAKis polnud merendust otseselt fookuses, siis otsustati koostada meretranspordipoliitika alamprogramm TAKi alla. On vaja selgeid visioone. Samuti on plaanis eraldi töögrupina ka lennundus. TAKi koostamisega on veel aasta minna. Tuleb ka veel üks TAKi kaasamisüritus, mis suunatud noortele. ITF viib läbi intervjuusid ka koostab ülevaatliku materjali transpordisektorist ja annab suunised (tähtajaks 2020. a suvi). Meretranspordipoliitika töörühmas arutati MERPOLi I prioriteeti kahes grupis. Prioriteet ja eesmärgid põhinevad kehtival meretranspordipoliitika arengukaval. Töörühma liikmetel paluti eesmärkide põhjal vastata kolmele allolevale küsimusele. 1) Mis on praegu hästi? 2) Millised on suurimad väljakutsed? 3) Mida tuleks teha, et eesmärk saaks saavutatud? Lisandunud kommentaarid on eri värviga Kommentaar MERPOL I prioriteedi mõjunäitajatele 1) merendussektori ettevõtetes loodava lisandväärtuse kasv aastas on suurem kui SKP kasv (%); 2) töötajate arv sektoris on 2020. aastaks 25 000. 44 Esimeses töölehes oli toodud välja probleem, et mõjunäitajaid on keeruline hinnata, kuna andmeid pole vajalikus mahus võimalik mõistlikult kätte saada. Probleemiks on statistika kättesaadavus, tuleb vaadelda igat ettevõtet eraldi. Tehti ettepanek tellida mõjunäitajate alusuuring.. Uuringu raames võiks valmida n-ö tööriist, mida saaks mõjunäitajate leidmisel/hinnangu andmisel edaspidi kasutada. Luua mereinfokeskus. Eesmärk 1 - Eesti laevandus on rahvusvaheliselt konkurentsivõimeline Mis on praegu hästi? Ettepanek Kommentaar Laevandussektori konkurentsivõime projektiga tegelemine Reisilaevandus heal tasemel Kaubalaevastik on olemas, aga laevad ei ole Eesti lipu all. Millised on suurimad väljakutsed? Ettepanek Kommentaar Konkurentsivõime projekt ei tohi vajuda soiku Transpordi ühendameti loomine, VA fookus ja tähelepanu merendusele kaob ära Tööjõupuudus ja palgasurve – noortel peab olema perspektiiv töötada Eesti lipu all Jätkata merenduse valdkonna õigusaktide revisjoni õigusselguse saavutamiseks ja bürokraatia vähendamiseks. Samuti haakub see punkt ka seadusandluse täiendusvajadusega laevade ostu ja remondi riigipoolsete garantiide osas.Revisjoniga on küll juba alustatud kuid see protsess on päris pikk ja peaks olema kindlasti kajastatud ka meretranspordipoliitika uues arengukavas Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Laevaremont ja -ehitus pankade garantiid, vaadata üle ja sõlmida kokkulepped, et saada laenu Luua tingimused, et laevandusettevõtted saaksid pankadest krediiti lihtsamatel tingimustel Seadusandlik riiklik garantii, et arendada konkurentsivõime projekti edasi Konkurentsivõime laevanduseelnõu harmoniseerida finantsvõimekusega Turundada konkurentsivõime projekti rahvusvaheliselt 45  Laiendada konkurentsivõime projekti ka reisilaevadele Vaadata üle mõiste „kodusadam“ Kui tuleb ühendamet, siis VA-st välja tõsta laevaregistri osa Elektrooniline väikelaevade register – süsteemi harmoniseerimine Ühtne register sadamakülastuste jaoks Digitaliseerimine – ühtne vaade, kuidas erinevad infosüsteemid täna toimivad? Millised võiks olla arengusuunad infosüsteemide lõikes? Ühtne info liikumine. Seoses sellega, seoses tööga CEPT tasandil, on tõstatunud küsimus veesõidukite raadiolubad elektroonse allkirjastamise võimalikkusest. Hetkel seda ei tehta. Kui Eesti seda aktsepteeriks, võiks seda nt teha 3.järgus – alguses kohalik (siseriiklik), siis nt Balti riigid või Euroopasõidurajoon ja tulevikus ka kõik. Teiseks võiks laeva merel – kui tekib raadiohäire, sellest operatiivselt saada vajalikku institutsiooni informeerida sama infosüsteemi kaudu, kus tal on juurdepääs tema raadioloale. Riik/EL peaks toetama laevade keskkonnasõbralikumaks muutmist Teenindussektoris palkade suurendamine Riik peaks majanduslikku olukorda jälgima ja tulema vajadusel ettevõtjatele appi, maksukoormuse leevendamine Eestis saab laeva kapten sooritada lootsitasõidu eksamit ainult Eesti keeles. See alandab Eesti sadamate konkurentsivõimet võrreldes naaberrikidega (näiteks Soome), kus saab lootsitasõidu eksamit ka inglise keeles sooritada. Selleks, et Eesti sadamate konkurentsivõimet kasvatada oleks vaja muuta Eesti seadusi nii, et ka Eestis saaks laeva kapten sooritada lootsitasõidu eksami ka inglise keeles. Kui regulaarselt Eesti sadamaid külastavate liinilaevade kaptenid saaksid sooritada lootsitasõidu eksami lisaks eesti keelele ka inglise keeles siis muutuks paljudele laevafirmadele Eesti sadamate külastamine odavamaks. See suurendaks Eesti sadamate laevakülastuste hulka ning tagaks Eestile parema ühenduse teiste riikidega, mis ühtlasi parandaks ka Eesti ettevõtete ekspordivõimalusi. Eesmärk 2 - Kaubavood Eesti sadamate kaudu on suurenenud 46 Töörühma ettepanek – muuta eesmärgi pealkirja: 1) Kaubavedu on lähiriikide sadamatega võrdluses konkurentsivõimeline. või 2) Sadamateenused on rahvusvaheliselt konkurentsivõimelised. Mis on praegu hästi? Ettepanek Kommentaar Eesti geograafiline asukoht ja paiknemine Ekspordile keskendunud sadamate kaubamahud on kasvanud või stabiliseerunud Millised on suurimad väljakutsed? Ettepanek Kommentaar Tööjõu puudus Jäämurdevõimekus Transiitkaubanduse puhul suhted Venemaaga Millal on sadam valmis? Sadamate kaitserajatised. Kliimamuutustele kohanemise kindlus (enim torme, vihmad) Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Eraldi sadamad ära kirjeldada TAKis. Sadamad on oluline taristu osa nagu raudteed jne Riiklikke tasusid lootsimisele ja veeteede kasutusele vähendada Tuleb analüüsida iga sadama võimekust kaubamahu osas, küsida, miks on kaupa vähem, kui on võimekus, seondub ka laevateede olukorraga, navigatsioonimärgistus, jäämurdeteenusega Jäämurdevõimekuse suurendamine, et kõik suuremad kaubasadamad (ka SL) oleksid teenindatud. Suureneksid kaubamahud Riik peab vajadusel sadamale appi tulema, nt muuli kivide väljalangemisel, setete väljavõtmine – kaadamiskohtade puudus Raha taotlemise võimalused selgemaks, info peaks olema koordineeritult kättesaadav – KeM, SiM Sadamaregister korda, sadamate liigitus Arengukavades puudub sadamate analüüsimisel/kirjeldamisel seos tagamaaga Sadamaid müüa koos kogu logistikaahelaga TAK ei tohi olla riigile kuuluva vara arengukava, peab olema üleriigilise haardega Mis on riiklikud vee- ja laevateed, nende konkurentsivõime 47  Jäämurdeteenus kõigile. Hetkel osad sadamad Väinameres u kolm kuud konkurentsist väljas Kaubavedude arvestus riigisisestel vedudel (piletiostul juba ära märkida, mida ja palju veetakse) Eesmärk 3 - Reisijate arv rahvusvaheliste laevaliinidel on suurenenud Töörühma kommentaar: Riigisisese reisijate hulga kasvatamine ei pruugi olla eesmärgiks iseenesest, seotud ka turistide vastuvõtu võimekusega. Mis on praegu hästi? Ettepanek Kommentaar Tallink Transiitreisijate arv Turistide arvu kasv Eesti julgeoleku olukord – turvaline riik Viisavabadus Venemaaga – Peterburi külastamise võimalus Millised on suurimad väljakutsed? Ettepanek Kommentaar Sihtkoha taluvuspiir Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Müüa Eestit kui sihtkohta Piiriülene koostöö RTF-projekt, kuidas saada sadamast edasi. Reisijate suunamine sadamast edasi. Teenus peab olema usaldusväärne ja sujuv Turism merel (väikealused, huvialused jne) Riigi abiga regionaalne liiklus, pidev pakkumine (Mõntu-Ventspils) Kuidas lugeda väikesadamates külastajaid? Digitaalne register Väinamere kruiisiturism. Koostöös Lätiga Riigi infrastruktuuri (veeteed Peipsil) Peipsi-, Lämmijärv ja Narva jõgi parandamine – liikuvus laevatatavate siseveekogudena on kaetud GMDSS A1 nõuetele vastava raadiosidega. Seega ka rahvusvaheline reisijatevedu on seal võimalik Uurida, millised on regionaalsed probleemid kruiiside korraldamisel, tegevused maismaal Poliitilise olukorra stabiilsuse säilitamine Eestis Ühtne sihtkoha turundus, EASi rolli vajalikkus Eesmärk 4 - Eesti laevaehitus ja -remont on rahvusvaheliselt konkurentsivõimelised 48 Mis on hästi? Ettepanek Kommentaar Meremajanduse keskus Kuressaares TalTech Eesti Mereakadeemia mereveonduse professori konkurss avatud Suurimad väljakutsed? Ettepanek Kommentaar Kohaliku tööjõu puudus, võõrtööjõud Ettevõtete väiksus ei suuda pakkuda mastaabiressurssi Tootmismahud ei võimalda konkureerida suuremate tegijatega Haridussüsteem ei tooda vajalikke spetsialiste Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Riigiäriühingud ei saa toetada personali koolitamist, nt ei saa sponsorluse korras stipendiume anda Riik peaks soodustama ettevõtjate kaudu stipendiumide andmist Riik peaks tegema poliitilisi otsuseid, et ostetakse uued mitte kasutatud laevad Vaja tootearenduse ja turundustegevuse tuge, näiteks EASi toetused Ettevõttete krediidivõimekuse toetamine Tellida täpne uuring lähiriikide (Läti ja Leedu) maksukeskkondadest meremeeste erialase täiendusõppe käibemaksuga maksustamise osas. Tagada meremeestele erialase täiendusõppe käibemaksuga maksustamine samadel soodustatud alustel kui Lätis ja Leedus. 49 KOKKUVÕTE Meretranspordipoliitika 2021-2030 PRIORITEET II Merendus on ohutu, turvaline ja merekeskkonna seisund on paranenud Töörühma II kohtumine 09.01.2020; MKMis. Osalejad: Marek Rauk – Veeteede Amet Madli Kopti – TalTech Eesti Mereakadeemia Enn Kreem – Eesti Laevaomanike Liit Villu Vatsfeld – Saarte Liinid AS Rivo Uiboupin – Meresüsteemide Instituut Jaak Viilipus – Laevajuhtide Liit Ilmar Tamm – Eesti Ajalooliste Laevade Selts Agni Kaldma – Keskkonnaministeerium Rene Hartõkainen – Politsei- ja Piirivalveamet Jaano Martin Ots – Eesti Väikesadamate Arenduskeskus Kert Süsmalainen – Veeteede Amet Jarmo Kõster – TalTech Eesti Mereakadeemia Jaak Kaabel – TS Laevad Jüri Grigorjev – Riigi Infokommunikatsiooni SA Madli Vitismann – ajakiri „Meremees“ Tauri Roosipuu – Laevajuhtide Liit Jako Vernik – Eesti Vabatahtlik Järve- ja Merepääste Jüri Lember – Eesti Meremeeste Sõltumatu Ametiühing Triin Leplan – Rahandusministeerium Viktor Palmet – Sadamate Liit Eve Külmallik – Maaeluministeerium Katrin Andre – MKM Taivo Linnamägi – MKM Reet Laos – MKM Meretranspordipoliitika töörühmas 09.01.2020 arutati MERPOLi II prioriteeti (Merendus on ohutu, turvaline ja merekeskkonna seisund on paranenud) neljas ekspertgrupis. Töölehes toodud prioriteet ja eesmärgid põhinevad kehtival meretranspordipoliitika arengukaval. Töörühma liikmetel paluti eesmärkide ja tegevuste põhjal vastata kolmele allolevale küsimusele. 1) Mis on praegu hästi? 2) Millised on suurimad väljakutsed? 3) Mida tuleks teha, et eesmärk saaks saavutatud? I Grupp Hüdrograafilised mõõdistustööd Laevateede rajamine ja rekonstrueerimine Mis on praegu hästi? Ettepanek Kommentaar 50  Mõõdistusvõimekus on kaasaegsel tasemel Mõõdistusinfo on elektrooniliselt kättesaadav Suurte ja oluliste sadamate ligipääs on väga hea Millised on suurimad väljakutsed? Ettepanek Kommentaar Turul pole piisavalt teenusepakkujaid (hüdrograafilised mõõdistustööd) Kommentaar teiselt grupilt – tunnustajaks on VA, teenuse pakkujaid on piisavalt, kuigi järjekorrad pikad. Loakohustus kaob ära. Kommentaar teiselt grupilt – kohustus ei ole koormav ja on pigem professionaalselt vajalik, kui loakohustus kaob, kuidas veenduda, et teenusepakkuja on tasemel ja oskab enda tööd kvaliteetselt? Suur tööde maht kaardistamisel. Kommentaar teiselt grupilt – pigem hetkel ratsionaalne. Uus mõõdistustehnika ja töötlemise IT juba parandavad seda. Andmetöötluse tehnoloogiaga kaasaskäimine (nt. lisaks ka 3D mõõdistused). Eesti puhul on teenus juba praegu pigem arenenud riikide tasemel Olemasolevale mõõdistusinfole laiendatud kasutus ja uurimisfunktsiooni leidmine nt. energeetika, vesiviljelus, merealade planeerimine Lääneranniku ja Väinamere sadamate juurdepääs on väljakutse Puudub laevateede hoiukava (stabiilne rahastus laevateede korrashoiuks) Avamere tuulepargid vs laevade liiklemise alad Laevateede perspektiivne ajakava (10 a) + uuringud Tln sisenemise TSS „lehtri“ laiendamine, Tln väljuv liiklus vs Muuga liiklus Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Prioriteetsete veeteede määratlemine Siseriiklike laevateede vastavus liikluskoormusele ja liiklevatele alustele, eriti just avalikele teenustele (ühistransport merele nt. Heltermaa, Rukki kanal - laiendada, süvendada kahele laevale) Veeteede rekonstrueerimine vastavalt siseriiklikule vajadusele Laevateede ja nav.märgistuse hoiukava (meremärgid, mõõdistus….analoog maanteede omale) Paindlikud nõuded ja korrad (keskkonnaalased) Rahastamine – Haapsalu raudtee vs laevateed Laevateede seisundi riiklik seire (sügavuste säilivus jne) on puudulik 51  Riigi nav.märgid (tulepaagid, majakad, tuletornid) vajavad pidevat hooldust II Grupp Navigatsiooniteabe kogumine, töötlemine ja edastamine Navigatsioonimärgistuse edasiarendamine Mis on praegu hästi? Ettepanek Kommentaar Ligikaudu 60% merealadest on mõõdistatud ja kättesaadavad „Nutimeri“ rakendus on positiivne areng Operatiivne mereohutuse teave on heal tasemel (võrreldes varasemaga) Navigatsioonikaartidega on Eesti veed kaetud (paberkaadid, elektronkaardid, Nutimeri rakendus) Nav.teabe edastamine on operatiivne ja võimalik läbi mitme erineva kanali (VTS, RIKS, VA) Navigatsioonihoiatuste portaal Millised on suurimad väljakutsed? Ettepanek Kommentaar Nav.märgistust võiks olla põhisadamate juures oluliselt rohkem (majanduslik otstarbekus vs. ohutus). Ka sadamate lähistel üldkasut. veetee + sadamate akvatooriumide märgistus. VTS teenus on poolik (võrreldes Soome näitega). VTS on vajalik: profilaevandus ja ka hobimeresõit. VTS kate lisaks põhjarannikule ka mujale. Kogutud andmete kättesaadavuse parendamine (näiteks Meresüsteemide Instituut) Mereilma hetkeinfo kättesaadavus ühest usaldusväärsest allikast ATONid tulevad koos VDSiga Mida teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Navigatsiooniteave võiks jõuda rahvusvahelistesse kaardirakendustesse vähem kui kolme kuuga. El.kaartide puhul 3 päevaga. Laiendada nuti-poide võrku (laine kõrgus, tuul, sademed, udu) Nutirakendus – virtuaalpoi (uuringuteks) Uute lahenduste rakendamine praktikas (näit. robot- lahendused) Mere ilmainfo (lained, hoovused, veetase) koondamine parema teenuse pakkumiseks laevandusele (avameri + 52  sadamad rahvusvahelistes sadamates ja riiklikult olulistes sadamates VA võiks teha mobiili-arvuti äpi, millest saab IT mereinfot lihtsalt ühest allikast. Sadamate naviinfo operatiivsest IT-allikast sh. operatiivne kontakt varjusadama vajaduse korral Nav.info kogumine võiks olla iga meresõitja „kohustus“ või panus (ujuvmärgid, reostus, takistused) III Grupp Mereside tõhustamine Otsingu- ja päästevaldkonna parandamine Mis on praegu hästi? Ettepanek Kommentaar Eesti merepääste vastutusalas on tagatud MS nii VHF, MF, Teavitused (MSI) + NAVTEX seda kõike teeb RIKS (18 TJ igas TJ= 8 raadiust (ch) 16.70.GS Tall. Rad 16.81.13 varu Eesti merepääste vastutusalas on tagatud MS nii VHF, MF, Teavitused (MSI) + NAVTEX seda kõike teeb RIKS (18 TJ igas TJ= 8 raadiot) 16,70,69 „Tallinn. Raadio“ töökanal 61,81,13 VTS tarvis ja üks VHF varukanal. MF – 2182 kHz; 1310 kHz ja 2167,5 kHz DSC tarvis Undvas. (RIKS) Hetkel VA VTS tarvis on VHF sidega kaetud kogu Eesti territoriaalveed ja Peipsi- ning Lämmi järved. (RIKS) Merevalve Keskus PPA + PPA Merepääste (SAR) Avariiside väikesaartega on tagatud mere VHF kaudu.(RIKS) PSTN pikendamine merele (ühendus alustega) Teenused ujuvvahenditele (MSI), sidekontrollid jne (RIKS) Tasuta emakeelne med.konsultatsioon laevaperele raadio kaudu (RIKS) Väikesadamate info suvisel ajal Kõik eelnevad tegevused jätkuvad, kui on tagatud riiklik finantseerimine. Millised on suurimad väljakutsed? Ettepanek Kommentaar VA, PPA ja Mereväe seiresüsteemide siduvuse tagamine. Koordineeritus peaks katma kogu Eesti ranniku Väikelaevade mereside on puudulik= koolitus + Eesti seadusandlus ei nõua väikelaevnike sidealane praktika + tehn.vahendite raadioside vahendite olemasolu kasutamine praktikas. Väikelaevnike kursused väikelaevas, see on vabatahtlik. Koolitused SRC toimuvad alates 2013, peale Vabariigi Valitsuse 53  29. augusti 2005. a määruse nr 225 muutmise jõustumist. Reostuse seire erinevate meetmete ja mooduste juurutamine Lennuseire tõhusamine sh. eriti kopterid (LIDARite kasutamine) reostuse avastamiseks oleks tõhus. Kopterite reageerimise aja vähendamine, kopterite arvu suurendamine Merevalve operaatorite tase on paremaks läinud, aga võiks parem olla. Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Uute tehnoloogiate kasutamine – droonid, iselaevad, tarkade poide võrk, navimärgistuse kasutamine mereseireks. Iselaevade juures vajalik välja töötada nägemus, millised seadmed (uued tehnoloogiad) kasutusele võetakse raadioside koha pealt, kuidas infovahetus kaldaga toimib. Arengukavas puudub üks riikliku järelevalve aspekt – veesõidukite raadioload ning raadiohäiretele reageerimine. Kui mereraadioside ei toimi või ei ole häirevaba, ei ole ka meresõiduohutus Eesti vetes tagatud. Partnerlus - piisava pääste- ja reostustõrje tagamine koostöös erasektoriga (kui eral on võimekus, siis riik tellib, mitte ei osta eraldi) Sideühenduste väljatöötamine lähtudes tuleviku Mereside on r/v reguleeritud, tehnoloogilistest arendusvajadustest (nutipoid, arendusteemadega töötavad autonoomsed laevad, väikelaevanduse vajadus) mitmed organisatsioonid (nt. CEPT r/v töörühm FM-58) Kui Eesti tahab olla innovaatiline, on hetkel vajadus mereraadioside testmõõtmiste läbiviimiseks ka teadusasutuste panust/toetust. 5G võrgu laiendamine merele Tugijaamade võrgu rajamine merele ei tule kõne alla, reisilaevadele paigaldatud tugijaamad on ehk mõeldav? Väikealustel tuleks kaotada riiklikud tasud navigatsioonisüsteemide ja raadioside kasutamise eest. See tagab selle, et rohkem aluseid hakkavad kasutama elektroonilisi navigeerimisseadmeid ja väheneb hätta sattumiste arv. IV Grupp Laevade tehnilise järelevalve ja klassifitseerimise tõhustamine Otsingu- ja päästevaldkonna parandamine 54 Mis on praegu hästi? Ettepanek Kommentaar Laevade tehn.järelevalve ja rahvusvahelised nõuded on hästi õiguslikult reguleeritud Riiklik organ (VA) on heal tasemel ja teostab kvaliteetset järelevalvet Eesti on Pariisi MOU valgel lehel Enamus klassifikatsiooniühinguid on Eestis esindatud ning saanud VA heakskiidu Vabatahtlikud regionaalsed merepääste üksused Riigi tugi varustuse soetamiseks on paranenud nii riiklike kui ka vabatahtlike puhul Ametkondade päästjate koolitus nii Eestis kui ka välismaal on hea ja tagatud Vabatahtlike merepäästjate õiguslik regulatsioon on korras Millised on suurimad väljakutsed? Ettepanek Kommentaar Konventsioonid ei ole eestikeelsed ja seoses sellega ei ole kindel nende õiguslik statuut Inspektorite järelkasvu planeerimine ei ole tasemel. Seotud ka oma laevastiku vähesusega Klassiühingute Assots. - IACS mitmed ühingud ei ole Eestis tunnustatud Väikelaevnike mereohutuse parem ja kvaliteetsem tasemekoolitus Ei ole võimalik suurõnnetustele reageerida ja päästa Puudu on päästelaevadest Puudu on lennuseire ja lennupääste (kopterid) Reageerimisaega võiks oluliselt tõhustada VTS süsteeme on vähe - koostöös VA ja Piirivalve alal. Laevade tehn.järelevalve ja rahvusvahelised nõuded ei ole kõige paremini reguleeritud sh. mitmed erisused vs rahvusvahelised nõuded. Siseriiklik järelevalve killustatus Järelevalveametnike keeleoskus võiks olla parem Määrused ja seadused ei ole inglise keeles kättesaadavad Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Veesõidukite registrite ja info ühtlustamine ja konsolideerimine Tasuks eraldada ressurss inimelude ja keskkonna vallas või konkretiseerida Luua Merepääste Nõukoda 55  Merepääste võimekuse paiknemine (riigi poolt katmata alad, asukohad). Riskialade määratlemine, siduda prioritiseeritud sadamate võrgustikuga sh. vabatahtlikud Merepäästevõrgustiku jätkusuutlikkus. Kommentaar grupist – PPA on koondanud MRSC kõik ühte punkti JRCC-sse (enne olid Kunda, Kuressaare, Kärdla, Tallinna ja Pärnu) Laevade ja sadamatega seotud keskkonnakoormuse vähendamine Mis on praegu hästi? Ettepanek Kommentaar Laevadel kütuse kasutus ehk väävli piirang IMO Ballastvee konventsiooni ratifitseerimine Õiguslik regulatsioon Sadamate välisõhu load ja veeload olemas Sadamad võtavad vastu laevaheitmeid Sadamate reostustõrje kavad Kaimaksu soodustus laevadele, kes täidavad keskkonnanõudeid Läänemeri on tunnisatud eripiirkonnaks – kontroll/seire puudu Kruiisilaevadel on musta vee töötlemise seadamed peal Millised on suurimad väljakutsed? Ettepanek Kommentaar Riigipoolsed garantiid ja toetused laevadele uute nõuetega seonduva toetamiseks Mitte riigi ja riigisadamate keskkonnameetmete rahastusmeetmete rakendamine Riigi reageeringud lubade taotlustele peavad olema lühemad Seire tõhustamine - seireandurid Reosturtõrje korraldus ja tehnoloogia vajaks kaasajastamist Sadamate vastuvõtuseadmete olemasolu nõue (hakkab kehtima 2021 PRF-direktiivi uus versioon) Kaldaelektriühenduste loomine kruiisilaevadele algusjärgus Koormuse hajutamine nõrk – kruiisituristidele trammiliin, et saaksid otse vanalinna ja häiriks vähem kohalikke Avaliku sektori võimekuse suurendamine merekeskkonnakaitset planeerida, keskkonnareostusi ära hoida ja nende tagajärgi leevendada Mis on hetkel hästi? Ettepanek Kommentaar 56  PPA Merevalvekeskus – väikesaarte avariiside on tagatud (99,97%) Kiire merereostuse avastamine merel ja kiire reostuse korje merel. Merel on odavam kui kaldalt korjata. Kaldasse jõudnud reostuse keskkonnakahju on suurem. Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Riskialade kaardistamine sõltuvalt ohu tüübist Riigi ja erasektori koostöö reostustõrje ressursside kasutamisel ( võtta aluseks riskialade kaardistamine) Regulaarliinide varustamine reostusseire vahenditega ja info süsteemne kogumine ja analüüs – integreerimine Copernicusega Seirepoide võrk mujal piirkondades Reostustõrje ressursside kaasajastamine ja piisavuse tagamine st uudsete tehnoloogiate kasutusele võtmine nt. droonid, nutipoid, iselaevad. Teadlikkuse tõstmine merekasutajate hulgas Arvestamine sat.süsteemi COPERNICUSega. Meretranspordipoliitika arengukava IV ja V prioriteedi töörühma tööleht 28.01.2020 PRIORITEET 4 Eesti merendusharidus ning teadus- ja arendustegevus on kaasaegsel tasemel Eesmärk 8 - Eestis antav merendusharidus kindlustab kõigile merendussektori valdkondadele vajalike spetsialistide kaasaegse õppe tasakaalustatud mahus Eesmärk 9 –Eestis loodud merenduse teadustöö maht ja kvaliteet on tõusnud Mõjunäitajad kehtivas MERPOLi rakendusplaanis: 1) tööturu pakkumine on tasakaalus nõudlusega 2) õppetööd läbiviivate töötajate vanuseline proportsiooni ning omandatud kvalifikatsioon toetavad valdkonna õpetamise jätkusuutlikkuse säilimist ning kvaliteedi tagamist Ettepanek Esitaja Eestis antav merendusharidus kindlustab kõigile merendussektori valdkondadele vajalike MeM spetsialistide kaasaegse õppe tasakaalustatud mahus. Tööjõu vananemine, erialaspetsialistide ja oskustööjõu puudus ning kalanduse valdkonna vähene atraktiivsus noorte hulgas, vajab sektori jätkusuutlikkuse tagamiseks terviklikku käsitlust: valdkonna positiivse kuvandi loomist, tõhusamat koostööd teadus- ja haridusasutuste, ettevõtete ja administratsiooni vahel õppekavade kaasajastamisel ja täiendusõppe korraldamisel, vajalike erialaspetsialistide koolitamisel ning konsulentide nõuande tagamisel. Need meetmed on toodud PõKa 2030 majanduslike eesmärkide täitmisega seotud sekkumiste all. Meie poolne ettepanek tulevikuks on, et kalandusharidust käsitletaks ühe osana merendusharidusest, seda eriti tasemeõppe osas, kus see tulevikus võiks olla mõne 57 eriala puhul ühe spetsialiseerumise võimalusena (nt kalalaevajuhtide väljaõpe jms) ning finantseeritav riigieelarvest. Eesti haridusasutused peaksid pöörama rohkem tähelepanu hüdrotehniliste, veeteede ja Saarte Liinid sadamate ehitusega vajalike insener-tehniliste erialade õpetamisele ja praktikale. Eesti haridusasutused peaksid pöörama rohkem tähelepanu Läänemere keskkonnalasele Saarte Liinid seisukorrale ja tegelevad uurimis- ja arendustegevusega, mis toetavad mereliste taastuvressursside kasutamist energeetikas ja keskkonnateadustes. Suurem panustamine rahvusvahelisel areenil autonoomsete laevade arendamisse. Veeteede Amet Eestis antav merendusharidus kindlustab kõigile merendussektori valdkondadele vajalike Laevaomanik spetsialistide kaasaegse õppe tasakaalustatud mahus. e Liit Autonoomsete laevade operaatorite väljaõppe võimaldamine. Laevaomanik e Liit Riigipoolne pidev rahastus merenduse teadustööde tegemiseks. Laevaomanik e Liit Eesti merendushariduse ja T&A arendamise tegevussuunal tuleks regionaalsetest RaM tegevustest näha ette Saaremaal ja Lääne-Eestis meremajanduse valdkonna ettevõtluse, hariduse ning teadus- ja arendustegevuse arendamist TalTechi Eesti Merehariduskeskuse (Kuressaares), Kuressaare väikelaevaehituse kompetentsikeskuse, ettevõtete ja piirkonna kohalike omavalitsuste koostöös. Tegemist on ühtlasi prioriteetse arendussuunaga vastavalt kehtivale Eesti regionaalarengu strateegiale kui ka Saaremaa valla ja maakonna arengukavale. Lääne-Eesti saarte asendiga kaasneva arengupotentsiaali paremaks ärakasutamiseks peaks sealsete „merelisusega“ seonduvate ressursside, kompetentside ja tegevusalade nutikas ja läbipõimunud arendamine olema oluliseks arendussuunaks ka riiklikus meretranspordipoliitika programmis. Muude tegevussuundadena võiks uue meretranspordipoliitika programmi ettevalmistamisel RaM kaaluda ka merega seotud taastuvenergiaallikate kasutuselevõttu soodustavaid tegevusi (tuule- ja laineenergia kasutusvõimaluste uurimine ja tehnoloogia arendamine, merealaplaneeringute elluviimiseks meretuuleparkide rajamise ettevalmistamine jmt). Eesti laevaehitus ja -remont peaksid olema rahvusvaheliselt konkurentsivõimelised, kuid Sadamate Liit mitte ainult. Oluline on senisest paremini korraldada siseriikliku laevaremondi tööstusharu. Tuleks kaardistada mitmete varem hästi toiminud laevaremondi tehaste problemaatikat ning toetada nende kiiremat järjele aitamist. Siin on kindlasti probleeme, mis on väljaspool MKM valitsemisala, kuid nende käsitlemata jätmine ei vii soovitava eesmärgi täitmiseni. Ka sadamatel oleks selles osas konkreetne huvi. Eestis antava merendushariduse eesmärk on kõigile merendussektorivaldkondadele Saarte Liinid vajalike spetsialistide kaasaegne õpe. Akadeemilise õppe osa on kindlasti ka sadamapraktika. Sadamapraktika osakaalu tuleks suurendada. Defitsiidiks on kujunenud spetsialistid, kes oskavad töötada sadamas kaasaegse Saarte Liinid laadimistehnikaga. Töötamine sadama laadimistehnikaga vajab sadamatöö eripära -ja ka üldisemat laeva konstruktsiooni tundmist. Mereakadeemia merekooli ümberkorraldus sadamatehnika suunal aitaks olukorda parandada. Eestis loodud merenduse teadustööd tuleks propageerida juba mereakadeemias õppimise Saarte Liinid ajal. Sadamamajanduse erialal tuleks oluliselt tõsta kõrgharidusele vastavat tehnilist ja inseneriõpet. Süvendatult tuleks õpetada kõrgharidusele vastavat sadama ekspluatatsiooni, tehnilisi tingimusi ja tehnoloogiat. TTÜ ja Mereakadeemia kooslus peaks seda võimaldama oluliselt intensiivsemalt. Peame oluliseks lisada eesmärk – „Eesti merenduse areng tugineb teaduspõhistele ja KeM innovaatilistele lahendustele“. Vastutavad ja kaasatavad ametiasutused selle prioriteedi 58 rakendamisel peaksid olema Haridus- ja Teadusministeeriumi ning Majandus- ja Kommunikatsiooniministeerium. Sellega seotud lahendamist vajavad probleemid tuleks kirjeldada koostatavas TAI ja ettevõtluse ühendstrateegias. Meretööstuse tööjõuturu vajadustest lähtuva kvalifitseeritud ja "nutika tööjõu" puudus. EMERA Väikelaevaehituse kompetentsikeskuse teenusevõimekuse arendamine. EMERA Meretehnika magistrikava arendamine EMERA Meretoorme väärindamise õppe ja teadussuuna arendamine EMERA Meretööstuse ja laevaehituse klastrikoostöö tootearenduseks ja eksporditurunduseks. EMERA Ettevõtete koostööprojektidel võiks olla madalalm omafinatseeringu määr, innovatsiooni- EMERA ja arendusmeetmete maksimaalne maht suurem. Luua merenduse doktoriõppekava. EMERA Integreerida Eesti merekool EMERA-ga. EMERA Luua süsteem ning järjepidavus merendussektori analüüside läbiviimiseks, mis oleksid EMERA metoodiliselt omavahel võrreldavad. 2021. aastal viiakse Eesti Mereakadeemia õppekavasse sisse õppeaine, mis käsitleb SoM meremeeste tööõigusi ja sotsiaaltagatisi ning suurendab nende investeerimisoskusi. Samuti peab see suurendama meremeeste ettevõtlusalaseid teadmisi. Täitjateks Majandus- ja Kommunikatsiooniministeerium koostöös Haridus- ja Teadusministeeriumi ning Rahandusministeeriumiga. 2021–2030 jagatakse juba töötavatele ja tööleasuvatele meremeestele süstemaatiliselt SoM teavet (ka võõrkeeltes) nende tööalaste õiguste ja sotsiaaltagatiste kohta ning korraldatakse täiskasvanukoolitusi meremeeste investeerimisoskuste suurendamiseks. Täitjateks Majandus- ja Kommunikatsiooniministeerium koostöös Haridus- ja Teadusministeeriumiga. Noortele esmase merehariduse ja -kogemuse andmine võiks olla riiklikult toetatav tegevus EALS 59 PRIORITEET 5 Rannaäärne elu- ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut, merekultuuripärandit kantakse edasi Eesmärk 10 –Mereturism ja merenduse ning randlusega seotud ettevõtlus on arenenud Eesmärk 11 – Merekultuuripärandi ja -traditsioonide säilimine on tagatud Mõjunäitaja kehtivas MERPOLi rakendusplaanis: Eesti sadamaid külastanud väikelaevade arv 2020. aastal on 20000 Tulemusnäitaja: aastaks 2020. on välja ehitatud vähemalt 5 väikesadamate võrgustikku kuuluvat sadamat Tulemusnäitaja: muuseumide külastajate arv 2020. aastal on suurem võrreldes 2015. aasta näitajaga (350 000 külastajat aastas) Ettepanek Esitaja Kommentaar/töörühma arvamus Alustada uue väikesadamate võrgustiku EVAK kontseptsiooni koostamist Väikesadamate funktsionaalsuse, EVAK kasutajagruppide ja koostöövõrgustiku määratlemine järgmiseks perioodiks Väikesadamate klassifikatsiooni ja EVAK teenusstandardi uuendamine. Sadamaregistri korrastamine vastavalt EVAK klassifikatsioonile ja teenusstandardile. Väikesadamate võrgustiku investeeringute – EVAK ja ülalpidamispõhimõtete uuendamine. Väikesadamate integreeritus teiste transpordi EVAK ja liikuvuse taristu osadega. Väikesadamate teavitus- ja turundustöö EVAK siseriiklikult ja rahvusvaheliselt. Lisada koostöö Eesti sihtkohtadega (turism ja EAS ettevõtlus). Mereturismi arenguks on oluline parendada väikesadamate andmebaaside kvaliteeti (põhistatus edasiste otsuste tegemiseks) ja viia sadama teenused vastavusse konkurentsiga (hinnad jmt). Oluline on ka kogukonna ja sihtkoha arendusega tegelevate organisatsioonide koostöö ning terviklik klienditeekond. Mereturismi soodustamine, sealhulgas Tallinna erinevate sadamate vaheliste liiniühenduste LV loomine merd mööda (nt Viimsist Kakumäele). Meretranspordi doteerimine ühenduse Tallinna pidamiseks väikesaartega (turismi LV arendamise eesmärgil ka väikesaartel, kus püsielanike arv ei ole suur). Luua riigipoolsed meetmed/toetused KOV Tallinna hallatavate sadamate taristu ja LV 60 akvatooriumite sisustamiseks ning arendamiseks (mitte ainult väikesaarte sadamates). Mereturismi ja merenduse ning randlusega SoM seotud ettevõtluse arendamisel on oluline, et rannaäärse elu- ja külastuskeskkonna, samuti reisijateveoks kasutatava meretranspordi ja selle teenindamiseks kasutatava keskkonna kujundamisel ja arendamisel arvestataks ka erivajadustega (sh liikumis-, nägemis- ja kuulmiserivajadusega) inimeste vajadustega, et tagada neile ligipääs turismiobjektidele ja meretranspordile. Täitjateks Majandus- ja Kommunikatsiooniministeerium koostöös Rahandusministeeriumi ja Sotsiaalministeeriumiga. Väikesadamate arendamisel on oluline MeM tähelepanu pöörata navigeerimise ohutuse tagamisele ning juurdepääsuteede võrgustiku rajamisele vastavalt vajaduste analüüsile ja kavale riigieelarve või struktuurifondide vahenditest. Riik käsitleb sadamatena kõiki sildumis ja Saarte randumiskohti. Riiklikult tunnustatud Liinid sadamate kitsam ja täpsem loetelu on väga oluline riiklike ja EL poolt rahastatud arengukavade, samuti kavade ja poliitikatega seotud toetusmeetmete kujundamisel ja rahastamisel. Taristu arengu täpsem ja julgem suunamine lõpetab olukorra, kus sadamate investeeringuteks mõeldud rahalised vahendid hajuvad ja toetused jõuavad sadamatesse ja sadamakohtadesse, kus tegelik navigatsioon puudub või ei ole enam looduslikult võimalik. Eesti naaseb avatud randade põhimõtte Saarte juurde. Eraomanikud kaotavad õiguse Liinid ajalooliste ja kogukondlike rannateede sulgemiseks ning kõigile tagatakse juurdepääs merele. Eesmärk X – Kultuuriliselt järjepidevates piirkondades tagatakse võimalused asustuse ja hoonestuse taastamiseks mereäärsetel aladel, ranniku kaitsevöönd ei pea hõlmama kogu rannajoont. Eesmärk XI – Eesti avaliku liini- ja parvlaevadega seotud teave/graafikud on kättesaadavad kõigis suurtes reisiplaneerijates (Google, Booking, Waze jms ) ja soovitavalt integreeritud nende poolt pakutud otsinguvõimalustega 61 Veealune kultuuripärand. KuM Eraldi tuleks käsitleda keskkonnaohtlikke vrakke. Vajalikud tegevused on nende inventeerimine ja seire ning meetmete rakendamine keskkonnaohu vähendamiseks. Võimalik rahastusallikas on Euroopa Merendus- ja Kalandusfond (merekeskkonna alaste teadmiste parendamine). Kultuuripärandil põhinev mere- ja KuM rannikuturism. Rannakülad ja ajaloolised tuletornid on märkimisväärse turismipotentsiaaliga. Samuti kasvab iga aastaga allveeturismi populaarsus. Randlase mõiste Saarte Kogu Tuleks käsitleda tegevusi piirkondliku RaM merepääste ja – turvalisuse edendamiseks. Näiteks kavandada koostöös Siseministeeriumi, kohalike omavalitsuste ning Politsei- ja Piirivalveametiga tegevused merepäästeseltside arendamiseks ja vajalike piirkonnaspetsiifiliste päästevahendite soetamiseks. Tegevusplaan väikesadamate võrgu RaM edasiseks terviklikuks arendamiseks. Seda nii ühenduste pidamise, turismi- ja puhkemajanduse ning kalanduse funktsioonides. Väikesadamate arendamine senisest enam ja soodsamatel tingimustel on vajalik nii mereturismi, kalanduse kui muu kohaliku sadamatega seotud ettevõtluse arenguks ning samuti merekultuuripärandi ja rannakülaelu alalhoidmiseks. Seada riigi tasandil prioriteediks RaM väikesadamate arendamine ja taastamine, merendusega seotud ettevõtluse ja rannaelu arendamine ning kavandada selle toetamiseks piisavad rahalised vahendid. Väikesadamate võrgustiku komplekseks RaM arendamiseks viia läbi eeluuring väikesadamate olukorrast ja investeeringuvajadustest Vaadata üle ja teha ettepanekud ebamõistlike RaM piirangute kaotamiseks meetmetes sadamate investeeringute toetamisel (sh nn 30 meremiili piirang; jäigad piirmäärad kalanduspiirkondade LEADER-meetme vahendite kasutuselevõtuks väikesadamate arendamiseks; erinev toetuse määr KOVdele ja sadamate arendamisega tegelevatele 62 MTÜdele, mis ei vasta MTÜde reaalsele võimekusele projektide kaasrahastamisel) Tagada võimalused multifunktsionaalsete RaM väikesadamate arendamise tervikprojektide toetamiseks, ühtlustades toetuse andmise tingimusi olenevalt väikesadamate arendamise funktsioonist (kalanduse, turismi ja ühenduste tagamine). Toetada tuleks ka väikesadamate teenuste mitmekesistamist; - tagada terviklik, kõigile nõuetele vastav ja ajakohane väikesadamate laevateede kaardistus ja tähistamine. Mereturism ja merenduse ning randlusega Sadamate seotud ettevõtlus vajaks arendamist. EL Liit tugifondidega on ehitatud ja renoveeritud palju häid väikesadamaid. Äärmiselt vähe on kasutatud olemasolevates kaubasadamates väikesadama funktsiooni loomise võimalusi. Vahel ehitatakse erineva riikliku toetusega uus väikesadam olemasoleva kaubasadama kõrvale, kulutades selleks vahel mõtetult raha. Ka mereturismi arengus mängib suurt rolli RIKS mereside kasutamisvõimalus väljaspool põhilaevaliikluse (SOLAS konventsiooni alla kuuluvatele alustele) alasid. Samuti väikesadamate informatsiooni edastamise võimalus on RIKS mereside võrgu töökanalite kaudu kõigile „NON SOLAS“ alustele regioonis võimalik (Vähesed väikesadamad juba kasutavad seda). Teenus on kasutamisvalmis kõigile asjast huvitatutele ja ei vaja lisainvesteeringuid. RIKS täidab ülesandeid ka Püsiasustusega väikesaarte seadusest tulenevalt: tagada elanikele avalikus kasutuses oleva avariiside, et telefoniühenduse katkemise korral edastada elutähtsaid teateid, kasutades mereside võrgu olemasolevat ressurssi. Elava merepärandi taaselustamine ja EALS säilitamine Eesmärk: Taaselustada elava merepärandi kultuur ning säilitada seda läbi erinevate tegevuste Tegevused: - Ajalooliste laevade ehitus ja taastamine - Laevade ajaloolise välimuse ja funktsioonide säilitamine, nende varustamine traditsiooniliste 63 vahendite ja atribuutikaga (Näit. tõstepoomid, plokid, puidust anumad, laternad jne.) - Ajalooliste laevade pärimuslike objektide rajamine rannaaladele (ellingud, päästekuurid, reisijate ooteruumid, meremeeste öömajad jne.) - Elava merepärandi hooldus ja tingimuste loomine objektide pikaajaliseks säilitamiseks. Mõju: Eesti kui ajaloolise mereriigi tuntus on märkimisväärselt suurenenud. Taastatud merepärandit on võimalik jätkusuutlikult majandada, hooldada ning edasikanda tulevastele põlvkondadele. Elav merepärand on autentne ja järgib ajaloolisi traditsioone. Elava merekultuuripärandi töökeskkonna EALS edendamine Eesmärk: Tööhõive suurendamine ja töökvaliteedi tõstmine merekultuuripärandi käitlemises ja teenindavas sektoris Tegevused: - Laevaperede, hooldustööliste ja spetsialistide töötingimuste parendamine (puhkeruumid, töövahendid, ohutustehnika jne.) ning tööruumide ja -pindade rajamine (töökojad, müügiletid jne.). - Laevaperede väljaõppe toetamine ja koolituste korraldamine Mõju: Suurenenud on oskustööjõud merekultuuripärandi teenindus- ja ehitusvaldkondades (puulaevandus, metallitööndus jne.). Töötute arv on Eestis vähenenud. Teeninduskvaliteet on laevanduses ja maapealsetes taristutes paranenud. Elava merekultuuripärandi teadmiste EALS säilitamine ja levitamine Eesmärk: Hankida, säilitada ja levitada teadmisi elava merekultuuripärandi kohta nii Eestis kui rahvusvahelisel tasandil Tegevus: - Elava merepärandi uurimustööd ja ekspeditsioonireisid - Infomaterjalide koostamine ja levitamine - Ürituste ja õppetöö korraldamine merekultuuripärandi tutvustamiseks 64 - Ajalooliste laevade rakendamine kultuurisaatkondadena välisriikides - Rahvusvaheliste suhete ja koostöövõrgustike loomine teadusliku töö eesmärgil Mõju: Informatsioon Eesti merepärandi kohta on kättesaadav. Kogutud andmed võimaldavad hankida oskusteavet, uuskasutada pärandtehnoloogiaid ja viia läbi erinevaid tegevusi merekultuuri arenduseks. Eesti kui ajaloolise mereriigi tuntus ja järjepidevus on nähtav rahvusvahelisel areenil. Mereliikluse ja teeninduskeskkonna EALS ohutuse tõstmine elavas merekultuuripärandis Eesmärk: Ohutu mereliikluse, reisijateveo ja teenuste turvalisuse kindlustamine Tegevus: - Ajalooliste laevade, nende meeskonna ja reisijate varustamine seadustega nõutud ohutustehnikaga - Ajalooliste laevade hooldamine ohutuse tagamiseks - Ajalooliste laevade maapealsete teeninduspunktide vastavusse viimine ohutusnõuetega - Ohutustehnika kohandamine vastavalt elava merekultuuripärandi ajaloolisele ilmele (valvepaadid, hüdroülikonnad, navigatsioonituled, päästevarustuse hoiukastid jms.). Mõju: Ajalooliste laevade liiklemine ja nende teenindus vastab ohutusnõuetele. Ohutusnõuetest tulenev varustatus ei riku elava merekultuuripärandi ajaloolist ilmet. Turismi arendus ja turundus elavas EALS merekultuuripärandis Eesmärk: Arendada välja elaval merekultuuripärandil põhinevad turismitooted ja –teenused. Luua väljundid kultuurisündmuste korraldamiseks ajaloolistel laevadel ja nende teeninduspunktides. Tegevus: - Ajalooliste laevade ja nende maapealsete ajalooliste objektide kujundamine iseseisvateks turismitoodeteks 65 - Ajalooliste laevade kohandamine erinevate Eesti turismitoodete ja –teenuste vajadustele vastavaks - Kultuurisündmuste korraldamine ajaloolistel laevadel ja nende teeninduspunktides - Elava merekultuuripärandiga seotud ajalooliste radade loomine ja objektide tähistamine. Mõju: Elav merekultuuripärand on tõstnud Eesti turismipiirkondade atraktiivsust ning mitmekesistanud turismiteenuseid ja – tooteid. Ajaloolised laevad ja nende teeninduspunktid on loonud väljundid kultuurisündmustele. Rannarahva traditsioonide arendamine EALS elavas merekultuuripärandis Eesmärk: Ajalooliste kaubandusmarsruutide ja vastavate sadamavõrgustike taaselustamine. Eesti väiketootjate kauba turustamiseks tingimuste loomine ajaloolistel laevadel, kohalikes sadamates ja välisriikide müügipunktides. Eesti rannarahva tootmisviiside tutvustamine ajaloolistel laevadel ja nende maapealsetel objektidel Tegevused: - Väiketootjate kauba turustamiseks laatade ja töötubade korraldamine ajaloolistel laevadel, kohalikes sadamates ja välisriikide turustuspunktides - Väiketootjate kauba hoiustamis- ja müügitingimuste loomine ajaloolistel laevadel ja teeninduspunktides - Turustusmaterjalide koostamine ja levitamine traditsiooniliste kaubandusmarsruutide ja sadamavõrgustike kohta Mõju: Rannarahva traditsiooniline toodang on suurendanud tuntust ja turustuslikke mõõtmeid. Loodud on traditsioonilised turustussündmused Eesti rannaaladel ning taastatud pärandkultuuriliste laevade ajaloolised suhted naaberriikidega. 66 KOKKUVÕTE Meretranspordipoliitika 2021-2030 PRIORITEET IV - Eesti merendusharidus ning teadus- ja arendustegevus on kaasaegsel tasemel. PRIORITEET V - Rannaäärne elu- ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut, merekultuuripärandit kantakse edasi Huvigruppide kohtumine 28.01.2020 MKMis. Osalejad: Triin Lepland – Rahandusministeerium Roomet Leiger – TalTech Eesti Mereakadeemia Rene Hartõkainen – Politsei- ja Piirivalveamet Jaano Martin Ots – Väikesadamate Arenduskeskus Jana Stahl – Eesti Saarte Kogu Riin Roosalu – Ettevõtluse Arendamise Sihtasutus Jüri Grigorjev – Riigi Infokommunikatsiooni SA Enn Kreem – Eesti Laevaomanike Liit Tarmo Sööt – Eesti Merekool Evelin Tomson – Kapten Uno Lauri Merekultuuri SA Kadi Saks – Majandus- ja Kommunikatsiooniministeerium Tarmo Post – Eesti Laevamehaanikute Liit Villu Vatsfeld – Saarte Liinid AS Liina Jänes – Kultuuriministeerium Madli Kopti – TalTech Eesti Mereakadeemia Annika Anton – Majandus- ja Kommunikatsiooniministeerium Merle Jantson – Lindi küla Mercedes Merimaa – Pärnu Lahe Partnerluskogu MTÜ Rivo Uiboupin – Meresüsteemide Instituut Raul Tell Veeteede Amet Kristiina Kästik – Ettevõtluse Arendamise Sihtasutus Piret Mürk-Dubout – Tallink Eve Külmallik – Maaeluministeerium Raivo Portsmuth – Eesti Merekool Maili Roio – Muinsuskaitseamet Jaak Viilipus – Eesti Meremeeste Sõltumatu Ametiühing Marge Kohtla – Politsei- ja Piirivalveamet Tauri Roosipuu – Eesti Laevajuhtide Liit Hele Kiimann – Eesti Meremuuseum Katrin Andre – Majandus- ja Kommunikatsiooniministeerium Taivo Linnamägi – Majandus- ja Kommunikatsiooniministeerium Reet Laos – Majandus- ja Kommunikatsiooniministeerium Töölehes toodud prioriteedid ja eesmärgid põhinevad kehtival meretranspordipoliitika arengukaval. Meretranspordipoliitika töörühmas 20.01.2020 arutati MERPOLi IV ja V prioriteetide üle neljas ekspertgrupis. Töörühma liikmetel paluti eesmärkide ja tegevuste põhjal vastata kolmele alljärgnevale küsimusele: 1) Mis on praegu hästi? 2) Millised on suurimad väljakutsed? 67 3) Mida tuleks teha, et eesmärk saaks saavutatud? Prioriteet 4 Eesti merendusharidus ning teadus- ja arendustegevus on kaasaegsel tasemel. Eesmärk: Eestis loodud merenduse teadustöö maht ja kvaliteet on tõusnud Mis on praegu hästi? Ettepanek Kommentaar Laevaehituse ja hüdrodünaamika uurismisrühm Hea koostöö riigi ja ülikoolide ning erasektori vahel( nt. ruumiline planeerimine, teenuste osutamine nt. laevaehitus, merestrateegia) Operatiivseire Mereharidus on olemas kõikidel tasemetel Sektoris olemas kõrgelt tasustatud töökohad TA tegevus on tõusutrendis Millised on suurimad väljakutsed? Ettepanek Kommentaar Teadusest praktikasse jõudmine (TAIES) Uute innovaatiliste seireteenuste väljatöötamine Automaatmõõtmine, satelliit. Prognoosmudelid - integreerimine TA maht ei ole piisav, mis toetaks merendussektori arengut Geoloogiateenistuse toetamine merepõhja maavarade uurimisel TA tulemuste kättesaadavuse parandamine välistele osapooltele Tervikülevaate saamine – sektorite tegevuskavad, mis on ka rahastatud Vajaduspõhine TA – sisendid nt. riigiasutustelt Teaduslaev (Salme asemele) Arheoloogilised välitööd Rahvusvahelistumine Mida teha, et eesmärk saaks saavutatud? Merenduse doktoriõppe käivitamine ja arendamine Merendus peaks olema erinevates TA rahastusmeetmetes enam välja toodud (EAS, ETAG, ARCHIMEDES) Riik ja huvigrupid peaksid kaasa rääkima uue rahastusprogrammi kujundamisel, et merendusteemad oleks paremini kaetud ( nt. Interreg, Horizon Europe) TA toetamine merendusega seotud valdkondades: Laevandus ja meretransport Okeanograafia ja meteoroloogia Kalandus Laevaehitus 68  Meretehnika Keskkond… Merendusharidus peaks olema läbi erinevate haridusastmete koordineeritum Teadustöö suurem sidusus majandusega Nutikad spetsialiseerumised Praktilisem õpe Olemasoleva taristu ratsionaalsem kasutamine (nt. uurimisjaam Saaremaa süvasadamasse) Konkurentsipõhisel TA rahastamisel merendusele spetsiaalsed meetmed Merendussektori tööjõuvajaduse uuring Seadusandluse korrastamine Rahvusvahelistumine - TA kui ka haridus Eesmärk: Eestis antav mereharidus kindlustab kõigile merendussektori valdkondadele vajalike spetsialistide kaasaegse õppe tasakaalustatud mahus Mis on praegu hästi? Ettepanek Kommentaar Eestis on süsteemne merealane kutse- ja kõrgharidus – Merekool ja Mereakadeemia Merendusharidus on kättesaadav ja kvaliteetne Haridus tagab elukutse Hea tehniline baas Nõuetele vastavad õppekavad Uued algatused – lisaerialad, merendusklassid, MTÜ-d Millised on suurimad väljakutsed? Ettepanek Kommentaar Uued põlvkonnad Lektorite järelkasvu tagamine Merendushariduse propageerimine: 1) Et tuleks õppijaid 2) Konkurents teiste koolidega Merendussektor tulevikus – tagada kvalifitseeritud spetsialistide olemasolu ka 10-20 aasta pärast Töötasu, maksustamine (toetav seadusandlus, sots.garantiid) Iselaevad – keskkonna muutumine Õppekavade kaasajastamine Millisel hetkel on laevajuht IT-mees Õppekavade dubleeritus Õppekavade ühisosa ärakasutamine ja koostöö Konventsionaalsetest (STCW) erisustest tulenevate nõuetekohase merehariduse pakkumine (sertifitseerimine, kvaliteedijuhtimissüsteem) 69 Mida teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Merendussektorit toetav seadusandlus (maksukeskkond jne) Probleemide põhjalik kaardistamine - tulevikutrendid Dubleerimise vähendamine Üldhariduskoolide/huvitegevuse ärakasutamine propageerimiseks (koostöö õppeasutustega). MTÜ Noored Merele, Meresõber… Toetav poliitika – motivatsioonipaketid, pikaajaline vaade Olemasolevate õppekavade kohandamine, lähtudes sektori vajadustest Õpetamiseks vajaliku infrastruktuuri arendamine Merenduse valdkonna laiaulatuslik üleriigiline turundamine Kutseõpetajate ettevalmistamine TA suurem integreeritus mereharidusse (nt TTÜ +EMERA) Kutse- ja kõrghariduse ladus koostöö ja ühtlustamine integratsiooni tasemel Merendusliku kutsehariduse mitmekesistamine Jätkuv merehariduse populariseerimine Merenduse algharidus põhihariduse tasemele valikainena Olemasoleva praktikabaasi tõhusam kasutus (laevad, sadamad, ettevõtted, ametid) Prioriteet 5 Rannaäärne elu- ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut, merekultuuripärandit kantakse edasi. Eesmärk: Merekultuuripärandi ja –traditsioonide säilimine on tagatud Mis on praegu hästi? Ettepanek Kommentaar Väikelaevaehitus elab Suures ulatuses on välja ehitatud väikesadamate võrgustik Kohalike ürituste algatus ja juba loodud jätkusuutlikud üritused Elav merepärimus Meremuuseumide väga hea tase (nii riiklik, kui ka era) Digiarhiivid Aktiivsed merispordi- ja päästeseltsid Inimesed soovivad mere äärde Kõik rannad on avatud (kallasrada) Hästi hoitud rannakülad/elanikud tulevad tagasi Suur hulk sadamaid 70  Taastumas on merekultuur ja traditsioonide väärtustamine Millised on suurimad väljakutsed? Ettepanek Kommentaar Põlvkondade vahetusest tuleneva jätkusuutlikkuse tagamine Sadamateenuste kvaliteet ja põhjendamine, miks ja mida me teeme Terviklik külastusteenuste väljatöötamine Turunduskontseptsioon ja -tegevused Tervikliku lahenduse pakkumine ja väljaarendamine piirist-piirini mööda rannajoont Sissetulekuallikad, töökohad Surve merelepääsu erastamiseks (sadamarajatised, kinnisvaraarendused) Tasakaal meremajanduse ja turismi ning kinnisvaraarenduste vahel Autentne rannakultuuri säilimine Mereturismi teenuste väljaarendamine/vähesus (näiteks – kalastus merel, loodusvaatlus, sukeldumine, veesport, lõbusõidud, lühikruiisid, teemarajad merel – tuletornid, vrakid, väikesaared) Mida tuleks teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Randlastele eeliste loomine, mis toetavad traditsioone Olemasolevate väikesadamate väljaarendamine, et pakutaks mitmekülgseid ja kvaliteetseid teenuseid Toetusmeetmete laiem tutvustamine Võrgustumine Külastuskeskused – mitmekesistamine, mitmeotstarbelised (nt. toetavad ka muid tegevusi näit. sukeldumine, surfamine jne) Hooajalisuse vähendamine läbi lisateenuste arendamise Sihipärane turundustegevus Merekultuuri arendamine, organiseeritus (tugevad jahtklubid) Sadamate turvalisus (piirkonniti) Randlaste väärtustamine (toetamine, praktiseerimise toetamine jne) Teadlikkuse tõstmine (haridus, loomemajanduse kaardistamine) Uued teenused Meetmed ja erisused merekultuuripärandi ja traditsioonide säilitamiseks Põhjalik ja laiaulatuslik lähteuuring merekultuuripärandist ja traditsioonidest (sh kalandus) – järeldused regulatsioonide meetmete ja erisuste osas. 71  Võtta aluseks rahvusvaheline praktika. Leida lahendused, kuidas kohalik kalur ellu jääks. Merendusega seotud ehitiste, rajatiste, „maamärkide“ kaardistmaine ja süsteemne taastamine (riigi või KOVi abiga) Meremuuseumide kaasamine üldhariduse õppekavadesse Merendusega seotud spetsiifiliste kutsete/ametite kaasaegne õpe (nt. keevitajad, dokkerid, vesiehitus) Eesmärk: Mereturism ja merenduse ning randlusega seotud ettevõtlus on arenenud Mis on praegu hästi? Ettepanek Kommentaar Toimiv mereside, mis soodustab arengut Väikesadamate võrgustik, väikesadamate areng Eripalgeline kultuuripärand Tugevad koostöökogud ja huvigrupid Kiire internetiühendus Meremuuseumi roll kultuurikandjana Info kättesaadavus on paranenud Kogukondade rolli teadvustamine – maaelu edendamine läbi fondide sh. kalasadamad. Teemaüritused – kalafestivalid, merepäevad jne. Millised on suurimad väljakutsed? Ettepanek Kommentaar Randlase mõiste hägustunud ja raske defineerida Saarte kogukonnad on suletud, tuleb targalt tegutseda (geograafiliselt ja ka eripäralt) Taristu säilitamine vajab pidevaid investeeringuid Atraktiivsete teenuste pakkumiseks ei olda alati valmis Sesoonsus Kiire internetiühendus saartel Ligipääsetavus Toetavad tegevused Info kättesaadavus välisturistidele võib olla keeruline Prügimajandus, sadamateenused Tuletornide ja ajalooliste hoonete korrastamine, rekonstrueerimine ja propageerimine Raha – piirkondlikult väga erinevad võimalused Mida teha, et eesmärk saaks saavutatud? Ettepanek Kommentaar Merekultuuripärandi inventuur Mereturvalisus Piirkondade ühtlane arendamine sh. uurimine 72 Parem info pärandi ja traditsioonide kohta (piirkonniti väga erinev) Regionaalne toimiv toetusmehhanism Piirkondade võrdne arendamine ( nt. Ida-Viru rahastus) Ettevõtlikkuse arendamine Mereharidus juba maast-madalast Teadlikkuse tõstmine Sihtkohtade ühtne turundamine Sadam üksi ei ole tasuv, vaja on multifunktsionaalseid lahendusi Ettevõtlikkuse ja ideede kasv (kui ei ole ideed, siis toetus üksi olukorda ei paranda) Mitmekülgsemate teenuste pakkumine, et edendada tagamaa arengut ( oluline on eripäraste teenuste pakkumine nt. sadamas rendiauto, väikealuste rentimine, konverentsid talvel jne). Kohaliku võrgustiku tugevdamine ja tasakaalu leidmine Hea juurdepääsetavus Keskkonnaalaste nõuete ja –seaduste kohandamine/hõlbustamine lähtudes mere- ja rannatavadest, meremajanduse vajadustest Väikesadamate registri korrastamine (hetkel 220 sadamat) toetused ja meetmed hajuvad seetõttu Kaardistada toetusmeetmed ja luua infobaas, et kohalik leiaks vajaliku info mugavalt Sünergia toetusmeetmete vahel Leida meetmed ja viisid, kuidas luua uusi tooteid ja teenuseid ning neid turundada rahvusvahelisel tasemel nt. visitestonia Otsustada, kes koordineerib koostööd ja tagada jätkusuutlik rahastus 73  14.09.2020 Vabariigi Valitsuse protokollilise otsuse „„Transpordi ja liikuvuse arengukava 2021-2035“ kinnitamine” eelnõu seletuskiri 1. Sissejuhatus ja eesmärk Vastavalt riigieelarve seaduse § 20 lõikele 2 ja kooskõlas Vabariigi Valitsuse 19. detsembri 2019. a määrusega nr 117 „Valdkonna arengukava ja programmi koostamise, elluviimise, aruandluse, hindamise ja muutmise kord“ esitab Majandus- ja Kommunikatsiooniministeerium (edaspidi MKM) Vabariigi Valitsusele kinnitamiseks transpordi ja liikuvuse arengukava 2021- 2035 (edaspidi arengukava). Arengukava koostamise ettepaneku kiitis Vabariigi Valitsus heaks 12. septembri 2019.a korraldusega nr 215. Arengukava koostamise ettepanekus jäeti muuhulgas lahtiseks tulevase arengukava kestus (10 vs 15 aastat), mille osas anti võimalus transpordipoliitika kestlikkuse aspektist lähtuvalt arengukava koostamisel täpsemalt läbi arutada arengukava kestus - 10 aasta asemel 15 aastat. Nii arengukava koostamise ettepaneku kooskõlastamisel kui ka arengukava mustandile arvamuse küsimisel pooldati valdavalt 15 aastast arengukava vaadet. Arengukava on koostatud 15 aastaks, kuna paljud valdkonnas toimuvad muutused (sh suuremad investeeringuprojektid nagu nt Rail Baltic, või Tallinna-Helsingi tunneli ehituse kaalumine) on pikaajalised ning tulemuste avaldumiseks kulub rohkem aega, samuti on silmas peetud kooskõla riikliku arengustrateegiaga „Eesti 2035“. Arengukava koostamisel on arvesse võetud  globaalseid arengutrende;  valdkonna praegust olukorda ja arenguvajadusi kirjeldavaid uuringuid, analüüse ja statistikat;  kooskõla teistes strateegiates ja arengukavades, sh Euroopa Liidu strateegilistes alusdokumentides seatud eesmärkidega;  valdkonna komisjonide suuniseid;  siht- ja sidusrühmade tagasisidet ja ettepanekuid. Arengukava põhidokument koosneb järgmistest peatükkidest: 1. Sissejuhatus 2. Transpordi ja liikuvuse käsitlus 3. Transpordipoliitika üldeesmärk ja valitud arengustsenaarium 4. Transpordi ja liikuvuse riiklik korraldus 5. Hästi ühendatud Eesti. Konkurentsivõimeline transport ja taristu 6. Liikuvus kui teenus. Üleriigiline, ühendatud ühistransport 7. Arengukava maksumuse prognoos 8. Dokumendis kasutatud lühendid ja mõisted Arengukaval on järgmised lisad: Lisa 1. Arengukava sisenduuring ITF/OECD poolt1 1 Lisatud ingliskeelsena, eestikeelne tõlge valmib hiljemalt 21.09. 1 Lisa 2. Keskkonnamõjude strateegilise hindamise aruanne2 Lisa 3. Ülevaade kaasamisprotsessist Lisa 4. Meretranspordipoliitika laiendatud visioon Lisa 5. Olukorra analüüs ja ülevaade varasematest tulemus- ja mõjuhindamistest Lisa 6. Hinnang Transpordi ja liikuvuse arengukavaga kaasnevatele mõjudele Lisa 7. Ülevaade valdkonna arengukava mõõdikute metoodikast ja allikatest Lisa 8. Arengukava seos teiste arengudokumentidega Arengukava elluviimist juhib Majandus- ja Kommunikatsiooniministeerium. Arengukava eelnõu koos lisadega koostas MKM transpordi arengu ja investeeringute osakonna ekspert Johann Peetre ([email protected], tel 625 6386), arengukava merenduspoliitika osa koostas MKM lennundus- ja merendusosakonna merendustalituse peaspetsialist Reet Laos ([email protected], tel 625 6334). Vabariigi Valitsuse otsuse eelnõu koostas ja keeleliselt toimetas MKM transpordi arengu ja investeeringute osakonna ekspert Ursula Sarnet ([email protected], tel 715 3404). Eelnõu juriidilise ekspertiisi tegi MKM õigusosakonna juhataja Tiit Rebane ([email protected], tel 639 7648). 2. Eelnõu sisu ja võrdlev analüüs Arengukava sissejuhatuses kirjeldatakse arengukava ja transpordipoliitika peamiseid väljakutseid ning globaalseid trende, mida võetakse arvesse uute poliitikate kujundamisel. Transpordi ja liikuvuse käsitluse peatükis selgitatakse arengukava ülesehituse loogikat ja arengukava paremaks mõistmiseks olulisimaid fookustermineid. Tuuakse välja seosed säästva arengu eesmärkidega. Transpordipoliitika üldeesmärgi ja valitud arengustsenaariumi peatükis kirjeldatakse, et peamisteks arengukava eesmärkideks on kasvuhoonegaaside vähendamise poliitika ehk transpordi negatiivse keskkonnamõju vähendamine, sh modaalnihke soodustamine maanteelt raudteele; avaliku sektori poolse eeskuju näitamine keskkonnasäästlike hangetega; aktiivsetele liikumisviisidele soodsa taristu arendamine, sh tagades ohutuse ja ligipääsetavuse; transpordi ja taristu planeerimise nutikuse tõstmine, mh andmete suurem kasutamine ja rakendamine liikuvusteenuste kujundamisel. Sama peatüki esimeses alapeatükis tehakse kokkuvõte transpordi valdkonna olukorra analüüsi põhijäreldustest. Põhimaanteede seisukord on väga hea, kuid probleeme on TEN-T määruse kriteeriumide täitmisega. Modaalnihkega autost ühistransporti ning aktiivsetele liikumisviisidele tuleb endiselt palju vaeva näha. Kõige positiivsem näide on raudteesektor, kus rongireisijate arvu sihttase on kõige tõenäolisemalt saavutatav. Väljakutsed on nii linnapiirkondades (ummikud, saaste jne) kui ka hajaasustuses (teenuse tõhus pakkumine, kvaliteet) ühistranspordi pakkumisel. Ühistranspordi ligipääsetavuse hetkeolukord vajaks parandamist. Raudteetaristul on probleeme kiiruste ja läbilaskevõimega, mis on üheks barjääriks edasise reisijate arvu kasvu saavutamisel. Teises alapeatükis tuuakse välja peamised tulemusnäitajad, milledeks on 1) transpordisektori CO2e emissioon; 2) kaubaveo indikaator mõõtmaks modaalnihet3 energiatõhusamale veoliigile, 2 Kooskõlastamisel olevas arengukava eelnõus on juba arvestatud keskkonnamõjude strateegilise hindamise aruande eelnõus toodud soovitustega. 3 Modaalne nihe ehk modaalnihe liikuvuskontseptsioon, kus eelistatud on säästlikumad liikumisviisid/transpordiliigid. Transpordi Valges raamatus on liikumised jagatud vahemaa järgi kolmeks: transport keskmise pikkusega vahemaadel, pikamaatransport ja linnatransport. Lühimaa-kaubavedudel ja 2 oodates raudteeosakaalu kasvu; 3) rahvusvahelise kauba- ja reisijaveo maht lennunduses ja merenduses; 4) liikumisviiside jaotus transpordiliikide lõikes; 5) liikluses hukkunute arvu vähendamine. Transpordi ja liikuvuse riikliku korralduse juures tuuakse välja transpordiliikide ülese planeerimise vajalikkust, sh liikuvusameti loomise ja funktsioonide sisu. Lisaks selgitatakse kaasamiskultuuri sisu nelikheeliksi mudeli4 alusel. Peatüki alapeatükis kirjeldatakse arengukava juhtimist läbi programmide, aruannete ja vahehindamiste. Arengukava juhtimiseks ja seireks on moodustatud juhtkomisjon. Hästi ühendatud Eesti. Konkurentsivõimelise transpordi ja taristu peatükis kirjeldatakse järgmiste alapeatükkide üleseid eesmärke. Põhilisim printsiip, millest tuleb taristu arendamisel lähtuda on nn 4-astme põhimõte, kus esmajärjekorras analüüsitakse võimalikke alternatiive uue taristu arendamisele ja alles järelduseni jõudes, et muid alternatiive pole, võib kaaluda uue taristu arendamist. Samuti lähtutakse taristu arendamisel transpordikoridoride põhimõttest ehk erinevaid transpordiliike arendatakse kompleksselt ja kaalutakse iga kord läbi paralleelsete transpordiliikide arendamise otstarbekus. Lisaks tuleb pöörata tähelepanu taristu arendamisel kulutõhususele, säästlikkusele, negatiivse keskkonnamõju vähendamisele. Arengukavaga nähakse ka ette vajadus investeeringute kooskõlaks arengukava eesmärkidega ka kohalikul tasandil. Alternatiivkütuste taristus lähtutakse üldjuhul kütuste tehnoloogia küpsusest, sotsiaalmajanduslikust tasuvusest ja nendest mõjust keskkonnale. Alapeatükis Keskkonnasäästlik liikuvus linnas ja linnakeskkond prioritiseeritakse eelkõige säästva liikuvuse soodustamist, ühistranspordi arendamist ja aktiivsete liikumisviisidele vajamineva taristu arendamist. Alapeatükis Ohutud teed tuuakse välja, et põhimaanteede arendamisega jätkatakse peamiselt ohutuskaalutlustest, samas pöörates tähelepanu aina enam ka keskkonnahoiule. Alapeatükis Raudteel säästlikult, ohutult ja kiirelt kirjeldatakse raudteetaristu arendamist, et võimaldada kiiruseid kuni 160 km/h (sh ohutusalased kaalutlused jmt), ühendades uusi sihtkohti (Haapsalu) ning välisühendusi (Rail Baltica, Peterburg, Tartu-Riia). Alapeatükis Mereriik Eesti, innovatiivne ja keskkonnahoidlik meretransport kirjeldatakse poliitikaid, kuidas muuta meretranspordisektorit konkurentsivõimelisemaks ja pööratakse tähelepanu selle koosvõimele teiste transpordiliikidega. Alapeatükis Eesti linnulennult. (Otse)lendudega ühendatud Eesti keskendutakse lennundussektori ekspordisuutlikkuse arendamisele ja koostööle Aasia turgude teenindamiseks. Samuti pööratakse tähelepanu Tallinna lennujaamale ja selle multimodaalsusele. keskpika vahemaa kaubavedudel (alla 300 km) tuleks valdavalt kasutada veoautosid. Pikamaa-kaubavedudeks kasutataks mitmeliigilisi vee- ja raudteetranspordi lahendusi. 30% maantee-kaubavedudest, mis on pikemad kui 300 km, tuleks 2030. aastaks asendada muude transpordiliikidega, nt raudtee- või veetranspordiga, ja üle 50% kõnealustest vedudest tuleks muude transpordiliikidega asendada 2050. aastaks. Reisijad kasutavad pikamaatranspordil rohkem busse ning raudtee ja õhutransporti. Linnades peab jalgsi käimine ja jalgrattasõit saama linnaliikluse ja infrastruktuuri kavandamise lahutamatuks osaks. 4 Nelikheeliksi mudel ehk koostöövorm paneb suure rõhu koostööle erasektori, ülikoolide, avaliku sektori ja kolmanda sektori/kodanikuühiskonna vahel ja eelkõige dünaamiliselt põimunud protsessidele. 3 Liikuvus kui teenus. Üleriigilise, ühendatud ühistranspordi peatükis tuuakse välja ühistranspordi planeerimise ja korraldamise uuendamise vajalikkust, et tagada suurem integratsioon erinevate regioonide ja transpordiliikide vahel. Rõhku pannakse ühistranspordi kvaliteedi tõstmisele, sh ühenduseaegadele, -kindlusele ja seotusele teiste transpordiliikidega. Arengukava maksumuse prognoosis tuuakse välja arengukava koostamise hetkel teadaolevad suuremad ning olulisimad investeeringud. Dokumendis kasutatud lühendite ja mõistete peatükis selgitatakse lühendeid ja termineid, mis on leidnud käsitlust dokumendis, kuid mis vajaksid ühtse mõistvuse jaoks defineerimist. Arengukava eelnõus kasutatud pildimaterjal on vabaks kasutamiseks mõeldud fotode pangast ning need on seal ajutiselt. Enne Vabariigi Valitsusele kinnitamiseks esitamist, läbib arengukava küljenduse, kus hetkel ajutised pildid ka välja vahetatakse. Eelnõu koosneb kahest punktist. Punktiga 1 kinnitatakse transpordi ja liikuvuse arengukava aastateks 2021-2035. Punkti 2 kohaselt avaldab MKM punktis 1 nimetatud dokumendi ministeeriumi kodulehel. 3. Eelnõu vastavus Euroopa Liidu õigusele Eelnõu on kooskõlas Euroopa Liidu regulatsioonidega. 4. Protokollilise otsuse mõjud Kokkuvõttes võib öelda, et Arengukava rakendamisega kaasnevad mõjud keskkonnale on tervikuna eeldatavalt pigem soodsad. Arengukava sisaldab palju põhimõtteid, mille järgimisel on võimalik liikuda keskkonnatingimuste parandamise ning ebasoodsate keskkonnamõjude vältimise ja vähendamise suunas. KSH aruande eelnõu esitab lisaks ka mõningad üldisemad, valdkondade ülesed ning pigem Arengukava ülesehitust ja fookust puudutavad ettepanekud, millele tähelepanu pöörata, et soodustada valdkonna arengut soodsas suunas ning vältida/leevendada transpordisektori ebasoodsaid mõjusid, koos ettepanekutega indikaatoriteks. Keskkonna mõjude strateegilise hindamise aruande eelnõu on arengukava eelnõu lisas 2. Detailsem mõjude analüüs on esitatud arengukava eelnõu lisas 6. 5. Protokollilise otsuse rakendamiseks vajalikud kulutused Arengukava rahastatakse riigieelarvest ja täiendavalt EL struktuurivahenditest. 6. Eelnõu rakendamine ja jõustumine Protokolliline otsus jõustub üldises korras. 4 7. Eelnõu kooskõlastamine ja huvigruppide kaasamine Eelnõu esitatakse kooskõlastamiseks ministeeriumidele ja Riigikantseleile ning täiendavalt arvamuse avaldamiseks Transpordi ja liikuvuse arengukava 2021-2035 koostamise ja seire juhtkomisjoni5 liikmetele ning merendusega seotud organisatsioonidele. Eelnõu ja seletuskiri on avalikud ning huvitunutel on võimalik tutvuda nendega eelnõude infosüsteemis (EIS) aadressil http://eelnoud.valitsus.ee (e-mailiga saadetakse teavitus kõigile arengukava koostamisel osalenud isikutele). Taavi Aas Majandus- ja taristuminister 5 Kinnitatud majandus- ja taristuministri 12.02.2019 käskkirjaga nr 1.1-1/19-029 (muudetud 16.04.20 KK nr 79). Liikmed loetletud ka arengukava eelnõu Lisas 3. 5  Lisa 3. Ülevaade kaasamisprotsessist TLAK algatamine 12.9.2019 Vabariigi Valitsuse korraldusega nr 215. KSH algatamine majandus- ja taristuministri poolt 14.11.2019 nr 1.1-1/19-199 Majandus- ja taristuministri käskkirjaga (12.02.2019 nr 1.1-1/19-029) kinnitatud juhtkomisjoni liikmed 2019: MKM transpordi asekantsler MKM, TAIO ITS Estonia Riigikantselei Keskkonnaministeerium Rahandusministeerium Tarbijakaitse ja Tehnilise Järelevalve Amet MTÜ Logistika ja Transiidi Assotsiatsioon Lennuamet Maanteeamet Veeteede Amet Eesti Rahvusvaheliste Autovedajate Assotsiatsioon Eesti Linnade ja Valdade Liit MKM, Energeetika osakond MKM, RISO CDO MKM, Teede- ja raudteeosakond MKM, Lennundus- ja merendusosakond Toimunud üritused Arengukava koostamine on olnud avatud protsess, kuhu oleme kaasanud väga laia hulka transpordi- ja liikuvuspoliitika huvilisi1. Oleme kaasamist korraldanud kahes faasis: 1. niinimetatud "valge paberi nägemuse" kogumine ehk nii avaliku- kui ka erasektori partneritega transpordi ja liikuvuse poliitika probleemide ja võimalike lahenduste kaardistamine; 2. investeeringuseminaride korraldamine „Kui me oleksime valitsus“. Investeeringuseminarideks olime koondanud varasemad kaasamistulemused, need 1 Kaasatavate nimekiri on lisatud arengukava koostamise ettepanekule. https://eelnoud.valitsus.ee/main/mount/docList/11c57113-30ee-484d-bd60-6ec2148c6505 1  grupeerinud potentsiaalseteks meetmeteks ning need ka hinnastatud. Seminaridel jagunesid osalejad gruppideks ning iga grupp sai suure koguse transpordi investeeringute ettepanekuid (132 rahaliselt mõõdetavat projekti) ning piiratud eelarve (ca 3 miljardit eurot 15 aastaks). Seminari eesmärgiks oli jõuda grupiga konsensusele, milliseid projekte tuleks etteantud ajaraamis ja piiratud eelarves ellu viima. Pärast investeeringuseminare oleme kogunud ka osalemise kohta tagasisidet ja täiendavad ettepanekuid meetmeteks, mida ei olnud seni kaardistatud. 12 märts 2019 TLAK juhtkomisjoni koosolek 11 aprill 2019 Arengukava avaüritus 30 aprill 2019 Linnapiirkondade töörühm Tallinnas 16 mai 2019 Maapiirkondade töörühm Tallinnas 12 juuni 2019 Rahvusvaheliste ühenduste ja konkurentsivõime töörühm Tallinnas 17-18 juuni 2019 Sillamäel ja Vändras kaasamisseminarid 05 juuli 2019 ITFiga kogupäevane kohtumine Tallinnas 09 august 2019 Krootusel kaasamisseminar 09 august 2019 Paide arvamusfestivalil teemaga „Kuidas vähendada transpordi CO2 80% 2050 a.“ 16 september 2019 MKM Tamme saalis kohtumine teemal „Kui me oleksime valitsus“ 24 september 2019 „Transpordi ja liikuvuse arengukava 2021+“ Juhtkomisjoni kohtumine 03 oktoober 2019 Investeerimisseminar Tartus „Kui me oleksime valitsus“ 15 oktoober 2019 ITF töörühm indikaatorite tuvastamiseks 07 november 2019 Planeerimiskonverents Tartus 10 detsember 2019 Meretranspordipoliitika kaasamisüritus „Eesti merendussektori ettevõtluskeskkond on ettevõtjasõbralik ja rahvusvaheliselt konkurentsivõimeline“ 9 jaanuar 2020 Meretranspordipoliitika kaasamisüritus „Merendus on ohutu, turvaline ja merekeskkonna seisund on paranenud“ 28 jaanuar 2020 Noorteühenduste kaasamine Tallinnas 28 jaanuar 2020 Meretranspordipoliitika kaasamisüritus “Eesti merendusharidus ning teadus- ja 2  arendustegevus on kaasaegsel tasemel. Rannaäärne elu- ja külastuskeskkond on atraktiivne, soodustades mereturismi ja kohaliku ettevõtluse arengut, merekultuuripärandit kantakse edasi” 18-19 veebruar 2020 ITFiga kahepäevane tagasisideseminar 25 veebruar 2020 Meretranspordipoliitika kaasamisüritus „Avaliku sektori tegevused toetavad merenduse arengut“ 9 märts 2020 KSH avalik arutelu Tallinnas Arengukava sisuosa on kokku pandud eelnevalt välja toodud kaasamisüritustel kogutud sisendi, ITF/OECD uuringu eksperthinnangute ja mudeldamistulemuste ning MKM parima ekspertteadmiste põhjal. Puhtandis võetakse täiendavalt arvesse tavapärasele kooskõlastamise ja avalikustamise protseduuridele veel KSH aruande tulemusi ning soovitusi. 3  Transpordi ja liikuvuse arengukava 2021-2035 Tallinn 2020 Transpordi ja liikuvuse arengukava 2021-2035 Sisukord 1. SISUKOKKUVÕTE 3 2. Sissejuhatus 5 3. Transpordi ja liikuvuse käsitlus 6 4. Transpordipoliitika üldeesmärk ja valitud arengustsenaarium 7 4.1. Seosed säästva arengu eesmärkidega 11 4.2. Transpordi valdkonna olukorra analüüsi põhijäreldused 11 4.3. Arengukavaga saavutatavad peamised tulemusnäitajad 14 5. Transpordi ja liikuvuse riiklik korraldus 15 5.1. Arengukava juhtimine 17 6. Hästi ühendatud Eesti. Konkurentsivõimeline transport ja taristu 18 6.1. Keskkonnasäästlik liikuvus linnas ja linnakeskkond 26 6.2. Ohutud teed 29 6.3. Raudteel säästlikult, ohutult ja kiirelt 31 6.4. Mereriik Eesti, innovatiivne ja keskkonnahoidlik meretransport 36 6.5. Eesti linnulennult. (otse)lendudega ühendatud Eesti 40 7. Liikuvus kui teenus. Üleriigiline, ühendatud ühistransport 45 8. Arengukava maksumuse prognoos 48 9. DOKUMENDIS KASUTATUD LÜHENDID JA MÕISTED 51 10. Lisa 1. Arengukava sisenduuring ITF/OECD poolt 53 11. Lisa 2. Keskkonnamõjude strateegiline hindamine 54 12. Lisa 3. Ülevaade kaasamisprotsessist 55 13. Lisa 4. Meretranspordipoliitika kontseptsioon 56 14. Lisa 5. Olukorra analüüs ja ülevaade varasematest tulemus- ja mõjuhindamistest 57 15. Lisa 6. Hinnang Transpordi ja liikuvuse arengukavaga kaasnevatele mõjudele 58 16. Lisa 7. Ülevaade valdkonna arengukava mõõdikute metoodikast ja allikatest 59 17. Lisa 8. Arengukava seos teiste arengudokumentidega 60 2 Transpordi ja liikuvuse arengukava 2021-2035 1. SISUKOKKUVÕTE Eesti transpordipoliitika eesmärk on tagada elanikele ja ettevõtetele mugavad, ohutud, kiired, ligipääsetavad ja kestlikud liikumisvõimalused, võttes sealjuures arvesse erinevate sihtrühmade ning kogukondade vajadusi. Arengukava peamiseks fookuseks on transpordivahendite ja -süsteemi keskkonnajalajälje vähendamine ehk kasvuhoonegaaside ja välisõhu saasteainete- jm heitgaaside vähendamise poliitika1, et aidata kaasa kliimaeesmärkide saavutamisele 2030. ja 2050. aastaks. Aktsiisi- ja maksupoliitikas lähtutakse saastaja maksab põhimõttest ja maksustatakse kütuseid vastavalt nende eriheitele ja energiasisaldusele. Tarvilik on võtta kasutusele madala süsinikusisaldusega kütused kõikides transpordiliikides, et saavutada energiasäästu eesmärke. Tulenevalt Euroopa Liidu seatud kliimaeesmärkidest (transpordisektor peab vähendama oma heitkoguseid 2050. aastaks 90% ning muutuma eelkõige linnades oluliselt vähem saastavaks, et saavutada kliimaneutraalsuse eesmärk) soovime 2035. aastaks vähendada transpordisektori kasvuhoonegaaside heidet 23-38 protsenti2 võrreldes 2018. aastaga. Täiendavad eesmärgid on seatud avaliku sektori hangetele, mis peavad vastavalt keskkonnahoidlike maanteesõidukite direktiivile3 tagama hangetes keskkonnahoidlike sõidukite osatähtsuste riikidele seatud miinimumeesmärgid aastateks 2025 ja 2030. Liikuvuspoliitikas toome ühistranspordi kasutamise inimestele lähemale ja muudame selle kasutamise mugavamaks ning kiiremaks ja ligipääsetavamaks läbi selle ühtse ja targema korralduse ja planeerimise, digitaliseerimise ning nutikama sõiduõiguse ja piletimüügi korralduse. Toetame jalgrattaga ja jalgsi liikumist läbi paremate liikumisvõimaluste ja suurema kasutusmugavuse pakkumise. Soovime kasvatada ühistranspordiga, jalgrattaga või jalgsi töölkäijate osakaalu 38 protsendilt 45-55 protsendini4. Taristuarenduses lähtume terviklike (transpordi)koridoride loogikast ja kavandame taristut multimodaalselt ning arvestame riigikaitse vajadustega. Arendame transpordisüsteemi lähtuvalt pikaajalistest plaanidest säästvalt, nutikalt, kasutajasõbralikult ja kulutõhusalt ning muudame taristul liiklemise kõigi liikluses osalejate jaoks ohutumaks ja säästlike liikumisviiside jaoks atraktiivsemaks (s.o lähtume sõidukita liiklejate vajadustest). Soovime vähendada liikluses hukkunute ja raskelt vigastatute arvu poole võrra ehk 30 hukkununi kolme aasta keskmisena aastaks 2035. Linnakeskkonnas arendame omavahel ühendatud ja jagatud liikuvust soosivat keskkonda, sh loome lahendusi, mis toetavad rohkem aktiivsete liikumisviiside kasutamist ning erinevate transpordiliikide koostoimet toetavatesse lahendustesse, mis tõstaksid säästlike liikumisviiside 1 Vt ELi eesmärk on saavutada 2050. aastaks kliimaneutraalsus – kasvuhoonegaaside netonullheitega majandus https://ec.europa.eu/clima/policies/strategies/2050_et 2 Kooskõlas Eesti 2035 strateegia eesmärkidega; konkreetne % selgub arengukava koostamise käigus. 3 Direktiiv (EL) 2019/1161, direktiivi tekst siin: https://eur-lex.europa.eu/legal-con- tent/ET/TXT/PDF/?uri=CELEX:32019L1161&from=EN 4 Konkreetne % selgub arengukava koostamise käigus. 3 Transpordi ja liikuvuse arengukava 2021-2035 kasutust autokasutajate arvelt. Tõstame raudtee kiiruseid ja ohutust ning loome uusi ühendusi, et kasvatada raudtee kui keskkonnasõbraliku liikumisviisi kasutust ja suuname konkureeriva alternatiivi korral nii reisi- kui ka kaubaliiklust maanteelt raudteele. Võtame eesmärgiks jõuda 2035. aastaks Tallinnast Narva ühe tunni ja neljakümne viie minutiga; Tartusse ühe tunni ja kolmekümne minutiga. Vähendame raudtee intensiivsema kasutamise juures selle negatiivset keskkonnamõju ida- ja lõunasuunalise raudtee elektrifitseerimisega. Loome rahvusvahelise rongiühenduse Euroopaga – Rail Baltica. Arendame maanteid, et vähendada aegruumilisi vahemaid ja tõsta liiklemise ohutust. Valime projekte lähtuvalt terviklikust sotsiaalmajanduslikust analüüsist. Maanteede ja raudteede arendamise vajadust hindame kompleksselt, kuna kiired, tihedad ja mugavad rongiühendused vähendavad põhimaanteede liikluskoormuse kasvu ning suurendavad liiklusohutust. Pakkudes kiireid ja keskkonnasäästlikke rongiühendusi, mida hakkab toetama kiire ja mugav kohalik ühistransport (kergrööbastransport, bussiliiklus), saame vähendada isikute poolt sõiduautodele tehtavaid kulutusi, mis ainuüksi Tallinnas ja Harjumaal on ca 1,5 miljardit eurot aastas5. Muudame meretranspordisektorit konkurentsivõimelisemaks ja rohelisemaks ning ühendame selle muu taristuga. Majanduse konkurentsivõime tagamiseks hoiame Eesti lendudega ühendatuna, arendame lennundussektori uusi ärisuundasid (nt õhusõidukite hooldusettevõtlus). 5 Vt Tallinna regiooni säästva linnaliikuvuse strateegia 2035 https://www.mnt.ee/sites/default/files/elfinder/article_files/tallinna_liikuvuskva_2019november_portrait.pdf 4 Transpordi ja liikuvuse arengukava 2021-2035 2. Sissejuhatus Peamine väljakutse jätkusuutliku transpordi ja liikuvuse planeerimisel on inimeste ja kaupade liikuvuse tõhusam korraldamine selliselt, et see oleks kasutajale ligipääsetav, mugav ja ohutu, panustaks positiivselt Eesti majandusse ning samas väheneks keskkonnakoormus6. Olulisemad globaalsed arengutrendid7, mis transpordisektorit mõjutavad, on:  piiratud looduslikud ressursid ning kesk- konnasõbralik majandus;  linnastumine koos püüdlusega linnasid inimsõbralikumaks muuta;  robotiseerimine, automatiseerimine ja di- giteerimine, sh andmete turvalisus ja kasu- tuselevõtt ning avatus;  jagamismajandus ning e-kaubandus. Neid trende arvestades on keskkonnahoidlik transport järgmiste kümnendite transpordipoliitika peamiseks defineerivaks märksõnaks. Kuna Eesti transpordisektor on endiselt väga saastav, on vajalik viia ellu olulisi muutusi, et vähendada märgatavalt transpordi negatiivset keskkonnamõju läbi energiasäästu (sh autota liiklejate turvalise ja mugava liikumise võimaldamise) ja kasvuhoonegaasi heite (KHG) ning välisõhusaasteainete vähendamise. Juhtrolli saab keskkonnahoidlikumale transpordile üleminekul võtta avalik sektor hangete korraldamisel. Sellest tulenevalt käsitleb ka arengukava keskkonnatemaatikat läbivalt kõikides peatükkides. Teisteks transpordipoliitikale tooni andvateks märksõnadeks on transpordi digiteerimine teenuste kättesaadavuse, mugavuse ja efektiivsuse kasvatamiseks ehk uute teenuste tekkimine, mis omakorda parandab Eesti konkurentsivõimet. Jätkuvalt on oluline liiklemise ohutus ja inimeste tervis. Suuremat tähelepanu saab ligipääsetavus, kvaliteetse ruumi loome ja universaalne disain. Läbivate teemadena käsitletakse neid teemasid sisupeatükkides kogu arengukava ulatuses. Hästi korraldatud transport sillutab teed majanduskasvule, mispärast on oluline olla hästi ühendatud nii riigi siseselt kui ka muu maailmaga. Geograafilisest asukohast tulenevalt on Eesti transpordikoridoriks Aasia ja Lääne-Euroopa vahel ning oluline vahelüli põhja-lõuna suunal, teenindades kaupade jaotamist Põhjamaadesse, nende riikide eksporti ja importi ning inimeste liikumist. Aegruumiliste vahemaade vähendamine erinevate piirkondade vahel on transpordi 6 Vastavalt 2020. aastal Euroopa Komisjonis valmivale Aruka ja jätkusuutliku transpordiarengukavale tuleb „transpordisektorit ... muuta arukamaks, digitaalsemaks ja kaasavamaks ning innovatsioonivaldkonnas juhtivaks sektoriks.“ 7 ITF Transport Outlook 2019. https://www.oecd-ilibrary.org/transport/itf-transport-outlook-2019_transp_outlook-en-2019-en 5 Transpordi ja liikuvuse arengukava 2021-2035 võimalus soodustada majandustegevust. Hästi korraldatud transport võimaldab efektiivset ligipääsu tööturule ja avalikele teenustele ning toetab turismi ja aitab kaasa kaupade kiirele liikumisele. Liikuvusteenused peavad olema heal tasemel nii linnas kui ka maapiirkondades, valides kõige tõhusama viisi nende korralduseks. Ühtselt ja nutikalt korraldatud transpordisüsteem, digivõimaluste kasutamine, nt nõudepõhise transpordi rakendamine, võib aidata kaasa Eesti tasakaalustatumale arengule. Targa transpordikorralduse aluseks on andmetel põhinev planeerimine ja tegelike liikumisvajadustega arvestamine. Paralleelselt peab tähelepanu pöörama inimeste liikuvuse efektiivsemale ja mugavamale korraldusele ning sundliikumiste vähendamisele, nt soodustades kaugtööd, erinevate (riigi-)teenuste laialdasemat digiteerimist, ostude tegemise suunamist e-kanalitesse jne. 3. Transpordi ja liikuvuse käsitlus Arengukavas tuuakse välja transpordipoliitika üldeesmärgid ja indikaatorid, kirjeldatakse transpordi riiklikku korraldust ja juhtimismudelit, taristu arendamise põhimõtteid, liikuvusteenuste korraldamise eesmärke ning hinnatakse arengukava elluviimise maksumust. Arengukava jaguneb sisuliste eesmärkide seadmisel kaheks osaks: transpordi taristu ja liikuvus. Taolise liigenduse eesmärgiks on käsitleda kõiki transpordiliike koos, ühtlustada planeerimispõhimõtteid ning suurendada liikumisviiside vahelist sünergiat. Taristupeatükis kirjeldame, kuidas korraldada kvaliteetset, ohutut, nutikat ja kestlikku taristut, et tagada mugavaid ja kulutõhusaid ühendusi nii Eesti siseselt kui ka rahvusvaheliselt. Liikuvuse korraldamise peatükis seame eesmärgiks liikuvusteenuse parema organiseerimise. See tähendab teenuste ja sihtkohtade kättesaadavuse tagamist targema maa-, õhuruumi ja veeteede kasutuse, efektiivsema ja ohutuma liikuvuse planeerimise, liikumiste asendamise, transpordisüsteemi omavahelise ühilduvuse ja nutikate lahenduste kasutamise abil. Kuna ligi 50% liikumistest toimub Tallinna-Harjumaa piirkonnas ning veelgi enam kõikides linnapiirkondades kokku, oleme pühendanud eraldi alapeatüki just linnalisele liikuvusele. Arengukava sisu paremaks loetavuseks ja arusaadavuseks selgitame alljärgnevalt arengukava mõningaid fookustermineid. Liikuvus tähendab võimet liikuda ühest kohast teise, kasutades ühte või mitut transpordiliiki ja teenuseid inimeste liikumisvajaduste rahuldamiseks. Säästev linnaline liikuvus lähtub linnapiirkondade elamisväärsusest ja toimivusest, arvestades mitmekülgset inimeste ja kaupade liikuvuse korraldamist majanduslikult, sotsiaalselt ning keskkondlikult jätkusuutlikul moel. Ligipääsetavus tähendab kogu elanikkonna kaasatust elu- ja infokeskkonda. See tähendab, et 6 Transpordi ja liikuvuse arengukava 2021-2035 kõikidele inimestele on olenemata nende vanusest või tervislikust seisundist tagatud võrdsed võimalused ühiskonnaelust osa võtta. Transpordivaldkonnas tähendab see järgmist: • Kaasava disaini printsiibi järgimist transporditaristu kujundamisel (sh veerem, peatused, jaamahooned, teekonnad peatuseni) • Liikumisinfo (sh piletimüük) on kõigile kättesaadav ja hõlpsasti mõistetav (sh veeremis, peatustes, veebis) Säästev transport on arengusuund, mis eelistab inimeste ja kaubaveol väiksema energiatarbe, ressursikulu (sh maakasutuse) ja keskkonnamõjuga (sh sõiduki kogu elukaare keskkonnamõju8) transpordiliike. Üldiselt peetakse väiksema keskkonnamõjuga9 transpordiliikideks raudteetransporti ja veetransporti. Kõige energiakulukamad transpordiliigid on maanteetransport ja õhutransport, säästvuse seisukohalt on olulisemad ühistransport ja kergliiklus (kõndimine, jalgrattasõit, kergliikurid jne). Liikluse, maakasutuse ja majanduse planeerimist viisil, et vajadus isikliku auto ja kaubavedude järele oleks võimalikult väike, nimetatakse säästvaks transpordipoliitikaks. Seeläbi on soositud mitmekesine elukeskkond, kus on mugav ja kiire ühistransport, turvaline ning tihe jalgratta- ja kõnniteede võrgustik ning aktiivne autode ühiskasutus. Kui läbivalt on peatükkides sõnastatud põhimõtted suunatud kõigile transpordiliikidele, siis viienda peatüki alapeatükid käsitlevad iga transpordiliigi taristut detailselt. Arengukava koostatakse 15 aastaks, lähtudes transpordi valdkonna eripärast kavandada keskmisest pikema aja jooksul taristu investeeringuid ja hoida sihti EL pikaajalistel eesmärkidel. Igas peatükis ja alapeatükis tuuakse välja alaeesmärgid koos vastavate indikaatoritega. 4. Transpordipoliitika üldeesmärk ja valitud arengustsenaarium Eesti transpordipoliitika eesmärk on tagada elanikele ja ettevõtetele mugavad, ligipääsetavad, ohutud, kiired ja kestlikud liikumisvõimalused kooskõlas Euroopa Liidu õigusnormides kehtestatud eesmärkidega. Arengukava korralduslik fookus on riigi transpordi planeerimise ja modelleerimise kompetentsi kasvatamisel, mille toel kujundada poliitikat ning tagada parem seos rakendatavate tegevuste ja strateegiliste eesmärkide saavutamise vahel. Transpordiliikide üleseks planeerimiseks ning tõhusamaks poliitikate rakendamiseks tuleb reformida riigi transpordialast institutsionaalset 8 Keskkonnahoidlike maanteesõidukite direktiivi alusel on defineeritud ka see, kuidas keskkonnahoidlike sõidukite puhul võtta arvesse sõiduki kogu kasutusiga hõlmavat energia- ja keskkonnamõju, sealhulgas energiatarbimist ning CO2 ja teatavate saasteainete heidet, eesmärgiga edendada ja stimuleerida keskkonnasõbralike ja energiatõ- husate sõidukite turgu ning suurendada transpordisektori panust liidu keskkonna-, kliima- ja energiapoliitikatesse. 9 https://www.eea.europa.eu/publications/ENVISSUENo12/page027.html 7 Transpordi ja liikuvuse arengukava 2021-2035 struktuuri, liites strateegilise planeerimise kompetentsi ühte asutusse. Seda eesmärki tuleks järgida ka kohalikul tasandil. Koos planeerimiskompetentsi kasvatamisega tuleb uuendada ja ajakohastada infrastruktuuri rahastamispõhimõtteid, sh tõhustada varahaldust. Rakendada "kasutaja maksab" printsiipi, et katta taristukulusid ning tagada võimekus edaspidisteks investeeringuteks ja jätkusuutlikkus taristu ülalpidamiseks. Arengukava põhimõtted ja tegevussuunad:  Kasvuhoonegaaside ehk CO2e heite vähendamise10 poliitika. Eesmärgiks on trans- pordivahendite keskkonnajalajälje vähendamine. Maanteetranspordi keskkonnajalajälje vähendamiseks kehtestatakse teekasutustasud saastenormide, CO2e heite, läbisõidu ja taristu koormuse alusel. Aktsiisi- ja maksupoliitikas lähtutakse "saastaja maksab" põhi- mõttest ning maksustatakse kütuseid vastavalt nende CO2 eriheitele ja energiasisaldu- sele. Tarvilik on lisaks madala süsinikusisaldusega kütuste kasutusele võtmisele tõsta efektiivsust kõikides transpordiliikides, moderniseerida sõidukiparki, kasutada kõrge energiasisaldusega kütuseid ning vähendada sundliikumisi, et saavutada energiasäästu11 eesmärke. Avaliku sektori hangetes tuleb tagada teatud hanke piirmäära ületamise korral riiklike eesmärkide täitmine aastateks 2025 ja 203012. Näiteks tuleb tagada, et sellistes hangetes on alates 2. augustist 2021 kuni 31. detsembrini 2025 vähemalt 23,1% kesk- konnahoidlikke kergsõidukeid, 7% keskkonnahoidlikke veokeid ja 31% keskkonna- hoidlikke busse. Busside puhul tuleb sealjuures pool eesmärgist tagada null-heitega bus- side abil. Aastaks 2030 on eesmärgid vastavalt 2,1%, 9% ja 43%. Läbiva põhimõttena peame oluliseks, et transpordivahendite disainimisel tuleb arvesse võtta ringmajanduse põhimõtteid tõhustamaks loodusressursi kasutust, sh suurendades teisese toorme kasu- tust. Teatavate õhusaasteainete riiklike heitkoguste vähendamise direktiivi kohaselt (NEC) tuleb tähelepanu pöörata ka Eestile aastaks 2030 kehtestatud eesmärkide õhu- saasteainete heitkoguste vähendamise kohustuse täitmisele võrreldes 2005. aasta tase- mega (ÕVP)13.  Kaubaveos14 eelisarendatakse mere- ja raudteevedu kui kõige energiatõhusamaid kaugveoliike ning kujundatakse ökonoomset kaubavedu võimaldavat multimodaalset taristut. Ka Euroopa Komisjoni Rohelise kokkuleppe üks eesmärkidest on olulise osa praegu 75% mööda maanteid toimuvatest vedudest suunata üle raudteele või merele. 10 Jagatud kohustuse määruse otsuse alusel, 4062018/842/EL406/2009/EÜ. 11 Energiatõhususe direktiivi alusel, 2012/27/EL. 12 Direktiivi (EL) 2019/1161 lisad 3 ja 4. 13 Juhul, kui meetmed rakendatakse ÕVP stsenaariumis ettenähtud mahus, peaks sellega kaasnema transpordi vald- konna NOx heite vähenemine 2030. aastaks vähemalt 39%, SO2 heite vähenemine 86%, LOÜ heite vähenemine 64%, PM2.5 heite vähenemine 41% ning NH3 heite vähenemine 47%. Vähendamismeetmete efektiivsus ning saasteainete heite vähenemise efekt on saavutatav meetmete komplekssel rakendumisel, ainult mõne meetme ra- kendamine sellist ulatuslikku heidete vähenemist transpordi valdkonnast tõenäoliselt kaasa ei too. 14 Sh riigisiseselt. 8 Transpordi ja liikuvuse arengukava 2021-2035 Kaupade liikumine läbi Eesti võimaldab ettevõtetel pakkuda oma klientidele kõrgema lisandväärtusega15 teenuseid kui vaid transiit.  Transporditaristut kavandatakse selliselt, et see oleks mugav, ligipääsetav ja ohutu kõi- kidele, sh puuetega ja piiratud liikumisvõimega inimestele16. Läbivalt pööratakse taristu rajamisel tähelepanu ka kvaliteetse ruumi loomisele, et avalik ruum ja teenused olek- sid kõikidele inimestele olenemata vanusest ja füüsilistest eripäradest ja erivaja- dustest ligipääsetavad (sh teed ja tänavad, ühistranspordipeatused ja sõlmpunktid, [ühistranspordi] sõiduvahendid) ning mugavad ja meeldivad kasutada. See eeldab tee- nusedisaini ning ligipääsetavuse ja universaalse disaini põhimõtete rakendamist trans- pordipoliitika loomuliku osana, seades esikohale avaliku sektori eeskuju.  Taristu ja liikuvusteenuste kujundamisel peab tagama ohutud17 liikumisvõimalused kõi- gile. Tähelepanu tuleb pöörata ka transpordivaldkonna töökeskkonnaga seotud heaolule, sh töövõime säilitamisele18 ning ohutusalase järelevalve tõhustamisele.  Liikuvusteenuste kujundamisel arvestatakse rahvastiku trendidega sh vanuse ja arvuga, elupiirkondade asustustihedusega, liikuvusnõudluse, sihtkohtade, sõlmpunktidega ning mahtudega, et pakkuda sobivat, vajadustest lähtuvalt teenust. Ennustamatu või ebare- gulaarse nõudluse korral võimaldatakse Eesti siseselt ka graafikupõhisele ühistranspor- dile alternatiivne, nt nõudepõhise transporditeenuse pakkumist. See tagab võimaluse inimestel liikuda just siis, kui teenust vajatakse.  Nutikas ja andmetel põhinev taristu planeerimine, mis on seotud jätkusuutliku maa- kasutusega ja transpordikorraldusega on osa edukast transpordipoliitikast. Hästi läbi- mõeldud ruumiotsused, eelkõige tiheasustusega piirkondades, ning nendest tulenev kva- liteetne ruumiline keskkond ja transporditaristu (planeerimise liikuvushierarhia: jalgsi, jalgrattaga, ühistransport ja siis muu) aitavad parendada inimeste heaolu ja vähendada õhusaaste ning müraga seotud negatiivset mõju tervisele ning keskkonnale, toetades ka majanduse arengut. Taristu planeerimisel kaalutakse ka digitaalseid alternatiive (nt um- mikute vähendamiseks juhtida liiklust nutikamalt). 15 Nt täiendav töötlemine, komplekteerimine, ümberpakkimine jne. Arendades transiitkaupade töötlemisega seotud tööstust ja teenuseid loome uusi ärimudeleid, täiendavaid töökohti, meelitame lisainvesteeringuid, misläbi suure- neb ka maksude laekumine riigile. 16 8-80 linnaplaneerimise printsiip, kooskõlas ligipääsetavuse direktiiviga 2019/882 17 Lähtuvalt Liiklusohutusprogrammis kokkulepitust https://www.valitsus.ee/sites/default/files/content-edi- tors/arengukavad/liikusohutusprogramm_2016-2025.pdf 18 Tööinspektsiooni statistika näitab, et transpordi ja ka merenduse valdkonnas töötavad inimesed on rohkem ohus- tatud, nt Töökeskkonna ülevaade 2019 https://www.ti.ee/sites/default/files/dokumendid/Meedia_ja_statis- tika/Uuringud_ja_uelevaated/TOOKESKOND_A4_2020_eestikeeles.pdf ja tööõnnetuste statistika https://www.ti.ee/et/statistika/tooonnetused, kus veonduse ja laondusega seotud valdkonnad on esiviisikus. 9 Transpordi ja liikuvuse arengukava 2021-2035  Jagatud liikuvuse edendamine. Eesmärgiks on säästvat arengut toetavate väärtushin- nangute kujundamine ja teadlikkuse tõstmine ning nendele põhimõtetele vastavate lii- kuvusvõimaluste arendamine. Autoliiklusele suunatud teede eelisarendamine võib olla põhjendatud hajaasustusega piirkondades, kus ühistranspordi ühendusi või kergliiklus- teid pole mõistlik luua. Sealjuures on oluline ka suunata autokasutajaid reise jagama. Riigi roll on olla suunanäitaja ning andmete pakkuja erasektorile erinevate liikuvustee- nuste arendamiseks. Ühistransporditeenuste ühildamine ning planeerimise ühtlustamine (ühistranspordikeskused jmt) ning ühtse multimodaalse piletisüsteemi loomine.  Transpordivaldkonna (jätkusuutlikuks) arenguks on tähtis rääkida kaasa transpordialase haridus- ja teadustegevuse suundade seadmises. Riigi jaoks on oluline fookus targa lii- kuvuse19 kompetentsi kasvatamine, sh võttes nutikate liikuvuslahenduste arendamisel arvesse erinevate valdkondade (nt energeetika, keskkonnahoiu, ehituse ja transpordi va- hel) aspekte. Samuti panustab riik koostöös erasektoriga rakendusuuringutesse ja tege- like empiiriliste pilootprojektide läbiviimisse, et leida tippteadusele reaalelulisi raken- dusi ja arendada koostööd erasektoriga nende turule viimiseks. Soovitatud suundadeks, mida teadus- ja arendustegevuses edendada on uued keskkonnasäästlikud kütused, “lii- kuvus kui teenus” jm uudse tehnoloogia lahendused, isejuhtivad sõidukid (maal, õhus ja vees), materjalide taaskasutus transporditaristu ehitustehnoloogias ning liiklusohutust suurendavad lahendused inimese, taristu ja sõiduki tarbeks. Üha enam on tarvis eks- perte, kelle teadmised ei piirdu vaid spetsiifilise valdkonnaga, vaid hõlmavad protsessi- juhtimise, tootearenduse, disaini ning tootmise digitaliseerimist, samuti transpordipolii- tika sotsiaalsete mõjude tundmist ning oskusi teenusedisaini rakendamiseks.  Riigisektor näitab keskkonnasäästliku käitumisega transpordi korraldamisel ja erine- vate transpordiliikide kasutamisel eeskuju (nt keskkonnasõbralike hangete näol jne). Sellele aitavad kaasa nii keskkonnahoidlike maanteesõidukite direktiivi alusel rakenda- tavad keskkonnahoidlikud maanteesõidukite hanked kui ka era- ja ärisektor, kes saaksid luua sünergiat riigi poolt võetud eesmärkidega.  Taristuinvesteeringute planeerimisel arvestatakse riigikaitsealaste nõuetega ja tehakse selle alast koostööd Kaitseministeeriumi ja Kaitseministeeriumi valitsemisalaga. Arves- tame transporditaristu planeerimisel, projekteerimisel ja ehitamisel muuhulgas Euroopa Liidu kahese kasutuse nõudeid20. 19 Osana niinimetatud targa linna valdkondadest. Vt rohkem: https://www.etis.ee/File/DownloadPublic/a0058268-a17d-47cd-b387-ef84c11a33ea?name=p352- Soe.pdf&type=application%2Fpdf 20 Commission Implementing Regulation (EU) …/…, specifying the infrastructure requirements applicable to certain categories of dual-use infrastructure actions pursuant to [Regulation No XXX/2019 of the European Par- liament and of the Council] 10 Transpordi ja liikuvuse arengukava 2021-2035 4.1. Seosed säästva arengu eesmärkidega Muudame maailma: Säästva arengu tegevuskava aastaks 203021 eesmärkidest on arengukaval kõige tugevam seos eesmärgiga nr 11: Muuta linnad ja asulad kaasavaks, turvaliseks, vas- tupidavaks ning säästvaks. Linnas saab transpordi valdkonnas iseloomustada seda järgmiste näitajatega: peenosakeste (PM₁₀ ja PM₂,₅) heide; liiklusõnnetustes kannatanud inimesed linna- des; ühissõidukitega, jalgrattaga või jalgsi tööl käijad. Linnaõhu kvaliteeti mõjutavad nii trans- pordiliigi valik (auto, ühistransport, jalgratas või jalgsi käimine) kui ka kasutatav kütus/ener- giaallikas. Arengukavaga on kavas käsitleda liikuvust linnades ning transpordi negatiivseid mõjusid kesk- konnale vähendada. Arengukava üheks rakendusdokumendiks on tulevikus ka Liiklusohutus- programm, milles on valitsuse tasandil kinnitatud meetmed liiklusohutuse suurendamiseks. Arengukavaga on kavas suurendada transpordi keskkonnasõbralikkust ning suunata alternatiiv- sete kütuseliikide tarbimisele. Täpsemad meetmed transpordis töötatakse välja koostöös Kesk- konnaministeeriumiga. Arengukava kaudsemad seosed on ka säästva arengu eesmärkidega nr 3, 10, 13 ja 14, kuid neid eesmärke viiakse ellu valdkondlike arengudokumentide raames, millest transport moodustab ühe osa (nt sadamad, veeliiklus, lennujaamad jmt – ning nende keskkonnanõuded). 4.2. Transpordi valdkonna olukorra analüüsi põhijäreldused Üldistatud olukorra analüüsi põhilised järeldused Transpordi arengukava 2014-2020 ja struktuurivahendite rakenduskava täitmise osas on järgmised22:  TEN-T (üleeuroopaline transpordivõrgustik) võrgustiku teede seisukord on tänu viimas- tel aastatel tehtud suurtele investeeringutele taristusse väga hea. 2019. aastal moodusta- sid halvas seisus TEN-T võrgustikku kuuluvad teed vaid 0,7% kogu riigiteede võrgust, Saatja: <[email protected]> Saadetud: 22.09.2020 09:42 Adressaat: TTJA <[email protected]> Teema: [EIS] Eelnõu kooskõlastamine: : MKM/20-1145 - "Transpordi ja liikuvuse arengukava 2021–2035“ kinnitamine" EISi teade Eelnõude infosüsteemis (EIS) on algatatud kooskõlastamine. Eelnõu toimik: MKM/20-1145 - Transpordi ja liikuvuse arengukava 2021– 2035“ kinnitamine Kohustuslikud kooskõlastajad: Haridus- ja Teadusministeerium; Justiitsministeerium; Kultuuriministeerium; Riigikantselei; Kaitseministeerium; Siseministeerium; Maaeluministeerium; Rahandusministeerium; Sotsiaalministeerium; Keskkonnaministeerium; Välisministeerium Kooskõlastajad: Arvamuse andjad: Kooskõlastamise tähtaeg: 13.10.2020 23:59 Kooskõlastatavad dokumendid on kättesaadavad EISis. Link eelnõu toimiku vaatele: https://eelnoud.valitsus.ee/main/mount/docList/39d66adc-4c93-4a01-beea- 9ca2f8d7bb1c Link kooskõlastamise etapile: https://eelnoud.valitsus.ee/main/mount/docList/39d66adc-4c93-4a01-beea- 9ca2f8d7bb1c?activity=1 Eelnõude infosüsteem (EIS) http://eelnoud.valitsus.ee/main